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C O M P R E H E N S I V E P L A N DOWNTOWN REVITALIZATION ELEMENT JOHNSON CITY COMPREHENSIVE PLAN
ADOPTED BY:
JOHNSON CITY BOARD OF COMMISSIONERS MAY 3, 2007
JOHNSON CITY REGIONAL PLANNING COMMISSION DECEMBER 12, 2006
Prepared By: City of Johnson City Planning Department
JOHNSON CITY TENNESSEE BOARD OF COMMISSIONERS
Steve Darden, Mayor Dr. Phil Roe, Vice-Mayor Dr. Ricky Mohon Jane Myron Pete Paduch
M. Denis Peterson, City Manager Charles Stahl, Assistant City Manager
Johnson City Regional Planning Commission
Joe Grandy, Chairman Vernon Bradley, Secretary Robert McKinney Brenda Clarke Dr. Ricky Mohon Kevin Cole Patricia Oldham* David Lefemine Mark Sizemore Dr. Mike Marchioni, Assistant Secretary* Robert White*
* Members of the Downtown Revitalization Element Subcommittee
Assisted by Johnson City Development Authority Bridgett Massengill, Executive Director
Prepared By The Johnson City Planning Department 601 East Main Street, PO Box 2150, Johnson City, Tennessee 37605-2150
Staff Responsible A) James Donnelly, Planning Director Wendy Jayne Bailey, Planner Steve Neilson, Long-Range Planning Coordinator Jeremy Bryant, Planner Ann Howland, GIS Database Specialist
DOWNTOWN REVITALIZATION ELEMENT
TABLE OF CONTENTS
INTRODUCTION…………………………………………………...………...1 Historic Overview…………… ………………………………...………...…1 Role of the Johnson City Development Authority ……………………...... 3 The Planning Process……………………………………………….……….4 Plan Boundary: The Core……………………………………………….…..6
GOAL AND OBJECTIVES…………………………….…………………….9 Goal………………. ………………………………………………………12 Objectives………………………………………………………………….12
EXISTING CONDITIONS…..……………….………………..…………….13 Land Use…………. …………………………………………………….…13 Economic Activity………………. ………………………………………..15 Building Characteristics……………………………………….…………...20 Transportation………………………... …………………………………...23 Streetscape……………. …………………………………………………..26 Parks and Open Space.………………………………………….………….35 Utilities………………………………………………………….………….38 Stormwater…………………………………………………………………42 Zoning and Regulatory Measures………………………………………….42
ANALYSIS ……………………………………..…………………….………46 Economic Activity…………………..………………………………..……46 Building Characteristics……………..…………………………………….50 Transportation…. …………………………………………………………51 Streetscape…………………………………………………………………58 Parks and Open Space………………………………………………….…..69 Utilities………………………………………………………………….….70 Stormwater…………………………………………………………………70 Zoning and Regulatory Measures………………………………………….74 Safety………………………………………………………………………75
POLICIES.…..………………………………………….………………….…76
APPENDIX Appendix 1: Downtown Trees……………………………………...... 86 Appendix 2: Fountain Square Report…………………………….…...... ….87
LIST OF TABLES
Table 1. Desired Downtown Activities………………………..…….………...9 Table 2. Reasons for Not Visiting Downtown……………….……...………...9 Table 3. Existing Land Use, Downtown Johnson City, 1998.……………… 13 Table 4. Public Parking Lots…………………………………………………24 Table 5. Parking Study in Public Parking Lots………………………………54 Table 6. Parking Study for On-Street Parking……………………………….55
LIST OF CHARTS
Chart 1. Public Parking Lots………………….……………….…….……….24
LIST OF MAPS
Map 1. Downtown Core Study Area...…………………………………...... 7 Map 2. Existing Land Use………………………………………………..……14 Map 3. Core National Register Districts………..………………………..……19 Map 4. Downtown Parking ……………..….………………………….…..…..25 Map 5. Existing Gateways………………………………………………..…....27 Map 6. Wayfinding/Parking Signs….…………..………………………...…...29 Map 7. Roads with Existing Street Lights……………...... 33 Map 8. Streetscape Furniture Locations………..…………………..…..….…..36 Map 9. Overhead Wiring..………..……………………………………………39 Map 10. Existing Johnson City Fiber Optics...…………………....….…….….41 Map 11. Zoning and Historic District Overlay……………...…..……………..44 Map 12. Tax Increment Financing Boundary………………..…..…………… 47 Map 13. Downtown Parking…………………………………..….…….……...53 Map 14. Proposed Gateway/Wayfinding Signs………………..….……..…….60 Map 15. Roads with Proposed Street Lights……………….…..……….……..66 Map 16. Proposed Additional Streetscape Elements.…………..……….……..68 Map 17. Overhead Wiring to be Placed Underground .………..…………...... 71 Map 18. Proposed Fiber Optics…………………………………..……………72
Johnson City Comprehensive Plan Downtown Revitalization Element INTRODUCTION
Over the years, Johnson City has increasingly worked to maintain its history and heritage while also maximizing opportunities for enhancing the quality of life for its citizens. As the city continues to expand with education, retail, industry, and health care facilities providing the catalyst, the importance of maintaining the small town character of the downtown becomes more evident. Communities across the country are realizing the importance of focusing economic development energies into their downtowns as they are the symbol of civic pride and the community’s beginning. The Downtown Revitalization Element seeks to provide a framework for citizens, businesses, and elected officials of Johnson City to use in planning the future of the downtown.
Johnson City is a community of more than 57,000 located in the foothills of the Appalachian Mountains of upper northeast Tennessee and is the largest city in the Tri- Cities metropolitan area, which is the fourth largest metro area in the State. Within the downtown, 79 commercial structures with construction dates ranging from 1887 – 1953, including the John Sevier Hotel, were listed in the Johnson City Commercial Historic District on the National Register of Historic Places in July 2003. As continued revitalization occurs, additional properties are expected to be included in the National Register. In May 2005, Johnson City became a nationally accredited and state certified Main Street community, the first accreditation for the city’s downtown revitalization efforts.
HISTORIC OVERVIEW
Since December 1, 1869, when officially chartered by the State of Tennessee, the city has undergone many changes as population increased and residential and commercial uses moved away from the downtown core. Johnson City has subsequently grown from a city with a strong historic central business district to one of urban sprawl. Businesses once located in one central location, the historic downtown, have relocated to the northern areas of the city, resulting in the decline and neglect of the downtown.
Over time, many different factors contributed to the movement that directed attention away from downtown and towards development efforts on the northern fringe of the city. Historians credit the beginning of Johnson City with the coming of the East Tennessee and Virginia Railroad, now known as the Norfolk Southern Railroad. The significance of a major mode of transportation cutting through an area was of great importance to early settlers. Henry Johnson first realized the potential of the railroad and as a result, the earliest developments in Johnson City occurred in the present downtown core around the rail lines.
In 1854, fifteen years before Johnson City became a chartered city, Henry Johnson constructed a storehouse at the junction of the proposed new railroad and the southwest corner of Stage Road, now Market Street. Along with the storehouse, he constructed a store, depot, post office, and residence. At the same time, Thomas Faw constructed a home and a store in the middle of the now 200 block of East Main Street. With a
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Johnson City Comprehensive Plan Downtown Revitalization Element INTRODUCTION
population of only 500, the city limits were set with a one-half-mile radius from the depot on the public square. In 1881, the second railroad, the East Tennessee and Western North Carolina Railroad emerged. Additional growth occurred resulting in the corporate limits being extended to 7.2 square miles with the population reaching 4,645 in 1889. Stores were built in response to railroad traffic coming through downtown and businesses emerged in response to convenient access to railroad transportation. Industry and manufacturing were strong markets in Johnson City and located in close proximity around the railroad tracks. All activities encircled the downtown central business district with the rail line leading into and out of the center of the town.
As population increased, Johnson City experienced substantial growth during the 1900s in the downtown area. Throughout the 1900s, business extended outward from the central business district along the transportation corridors. The surge in population growth may have been in response to the emergence of a third rail line in Johnson City. In 1907, the Clinchfield Railroad line was constructed through downtown. With the third railroad through downtown, a three-railroad convergence occurred in central Johnson City. With the expansion of the railroad, manufacturing began locating along the rail corridor. Additionally, the John Sevier hotel, the public library, the King building, the Johnson City Press, and the WJHL building (formerly the United States Post Office) emerged between 1923-1938 and contributed to the growth of downtown.
In 1976, a report entitled “Inside Johnson City and Washington County, Tennessee” described downtown as the most concentrated shopping area of the city. The report continued by stating that variety and convenience were two words associated with shopping downtown. Additional improvements to the downtown area within the next five years were proposed to further enhance the attractiveness of the area to shoppers. These improvements included the introduction of the bus transit system, a four-lane loop around downtown, and a planned pedestrian open-air mall banning vehicular traffic. However, the pedestrian mall did not become a reality. The report also mentioned a new addition to Johnson City: an enclosed, modern all-weather shopping center located on North Roan Street, in the northwest section of the city. Further commercial and financial businesses located in north Johnson City during the 1980s, resulting in a major shift in the distribution of commercial and financial activities and a major change in the character and composition of the downtown area.
In 1984, Kings Department Store closed and the last remaining bank, Hamilton Bank (now SunTrust Bank), relocated from downtown to north Johnson City. As commercial and financial institutions moved out of downtown, hotels were no longer needed. Visitors preferred staying in north Johnson City where the retail activity was occurring. By 1978, the John Sevier Hotel had become a Federally-subsidized, Section 8 elderly and disability home, and hotels such as the Sheraton Plaza (now the Holiday Inn) and the Garden Plaza Hotel (now the Doubletree Hotel) were opened in 1985-1986 in north Johnson City.
Downtown Johnson City continued its decline into the early 2000s, with increased urban sprawl. According to the 2003 Dover & Kohl study, downtown has been negatively
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Johnson City Comprehensive Plan Downtown Revitalization Element INTRODUCTION impacted by the one-way design of streets, as well as a loss of buildings and economic energy due to policies that encouraged sprawl and discouraged downtown business activity. The intent of the current street infrastructure system is to drive through downtown, rather than into downtown. Sidewalks are in poor condition, and buildings are left deteriorating and under utilized. In 2001, the Clinchfield Train Depot that once stood as a thriving train depot instead made the Tennessee Preservation Trust’s top ten “Most Endangered Places” list. The designation on the endangered places list further indicates that attention to historic downtown property has declined.
Today, Johnson City’s population is projected at over 57,000, according to 2005 Census estimates. The city’s population growth is expected to increase moderately with a projected increase to 72,400 by the year 2020. The original downtown central business district is no longer the center of economic activity. Johnson City’s commercial activity is centered around north Johnson City, away from the central business district. The historic business district has now become a small economic activity base, while The Mall, restaurants, and several other large retail developments along State of Franklin Road are sites of intense economic activity. The deterioration and neglect that has occurred downtown provides the impetus for the development and implementation of a “Downtown Revitalization Element” of the city’s Comprehensive Plan to provide policy guidance in solving the continuing problems occurring in downtown.
ROLE OF THE JOHNSON CITY DEVELOPMENT AUTHORITY
During the mid 1980s, community leaders recognized the deterioration that was occurring in the downtown. In response, the Johnson City Chamber of Commerce conducted a yearlong study designed to bring life back to the downtown. A number of citizens, community leaders, and elected officials participated in a program to recommend action. As a result, the Tennessee General Assembly passed legislation in 1985 calling for remedial action to be taken towards strengthening and re-energizing the declining downtown. The legislation created the Johnson City Development Authority (JCDA), organized in 1989, to foster economic growth and implement development and redevelopment activities in underutilized areas within the city of Johnson City, with its primary focus on downtown.
Currently, the JCDA Board consists of 17 members appointed to three-year terms by the Johnson City Board of Commissioners. Daily administration occurs through an executive director, overseeing an executive secretary and facilitating numerous committee volunteers and supporters from within the community. A concerted effort is made by the JCDA to strengthen business, eliminate economic deterioration, enhance a sense of community, and protect the architectural representation of Johnson City’s heritage.
Responding to the authority given to the JCDA through the authorizing state legislation, a Downtown Visioning Symposium was initiated in February 2001, which allowed the community to develop a shared vision for downtown Johnson City. As a result, the following vision statement was approved:
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Johnson City Comprehensive Plan Downtown Revitalization Element INTRODUCTION
Downtown Johnson City is a place with a uniqueness shaped by a sense of history, but not bound by the past. It is an active mixed-use community where people work, live, and play; an attractive, clean and safe environment. It offers a mixture of arts, cultures, and faiths; education, entertainment, and tastes; business, government, and emerging technologies; and opportunities for innovation and entrepreneurship. Downtown is the heart of the city with arteries flowing throughout the Tri-Cities Tennessee/Virginia region, embraced by nature and surrounding mountains.
In 2002, the JCDA adopted a vision and mission statement, along with an action plan detailing 18 priority points to focus attention towards downtown revitalization efforts. The Downtown Action Plan created a mission statement for the JCDA’s goals. The mission statement reads:
The mission of the Johnson City Development Authority is to promote and assist the development and redevelopment of Johnson City by seeking input from throughout the community; identifying actions to meet those needs, and participating where necessary to implement actions.
In 2005, the JCDA began following the National Main Street model, a four-point approach to downtown revitalization, and received a national accreditation by the National Trust for Historic Preservation, and a state certification in the Tennessee Main Street program. The accreditation and certification is a direct result of the efforts underway through the JCDA to improve the downtown district. Johnson City is currently one of 15 Tennessee Main Street Communities, and the JCDA serves as the administering organization of the program for Johnson City.
Through the Vision Statement, the Mission Statement, the enabling State Legislation, and the certified Main Street program, the role of the Johnson City Development Authority has emerged as the designated body serving as the leader in the redevelopment and revitalization of downtown Johnson City. Further, the JCDA serves as the organization to help shape and mold policies and recommendations that will directly affect the future of Downtown Johnson City.
THE PLANNING PROCESS
The development of this plan results from the efforts of the city of Johnson City’s Planning Department and the Johnson City Development Authority, beginning with the JCDA’s Physical Plan Task Force to the JCDA’s Design Committee. The original Task Force was comprised of citizens and representatives of local interest groups, city and county departments, and commissions. The broad based collective group helped establish the basic goals based on public input and adopted vision and planning documents and statements.
Community participation was a key component to the planning process. Residents, property owners, business, civic, and public leaders participated in many public focus
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Johnson City Comprehensive Plan Downtown Revitalization Element INTRODUCTION group meetings. In 2001, a Downtown Visioning Symposium was held and sponsored by the JCDA, inviting the community to become involved in creating the Vision Statement for downtown. Attendees helped identify key issues, goals, and objectives for downtown. The Symposium resulted in written responses from 45 individuals of various professional and personal backgrounds to create the final Vision Statement for downtown. The responses resulted in a document reflecting the community’s vision for the area.
In 2002, the JCDA Physical Plan Task Force conducted public hearings to collect input for the future development of downtown. Exercises were conducted to gain insight into how residents wanted future land planning decisions to be made in downtown. The Physical Plan Task Force worked through many phases of collecting and processing public domain information in order to achieve the identified goals. All members participated with collecting and analyzing information on behalf of the JCDA, the City Commission, and the citizens of Johnson City.
Throughout 2002 – 2004, subcommittees were created from the Physical Plan Task Force to further investigate and compile information. Such subcommittees included the Plan Review Group, comprised of city and board representatives, the Building Type Review Group, comprised of architects, city and board representatives, and the Landmark Subcommittee, comprised of city and board representatives, members of the planning and historic zoning commissions, and architects. The Plan Review Group worked on the overall components of the plan while also evaluating the progress of a database compiled by the Building Type Review Group. The Building Type Review Group identified distinct building types and provided renderings and text to describe the existing building types. The Landmark Subcommittee classified all downtown buildings as either contributing, noncontributing, or as a landmark of historic significance in the downtown. This plan presents an action plan which will enable public and private partnerships to define the downtown and collectively connect the area to the community at-large.
Additionally, information was collected from various other planning efforts, community workshops, committee reviews, and on-site observations from planning consultants including:
• Fountain Square Charette Report, LaQuattra Bonci Associates, 2005 • Connecting Johnson City, Dover Kohl & Partners, 2000 • Get Over It, Tessier & Associates, 2002 • City of Johnson City’s Vision Statement, 2002 • City of Johnson City’s Planning Commission - Vision Statement • City of Johnson City’s Strategic Plan for Johnson City 2006 and Beyond • Johnson City Land Use Plan, 1987 • City of Johnson City’s Planning Commission - Citizens Survey, 2003 • City of Johnson City’s Planning Department – Proposed Design Guidelines, 1998 • Historic Preservation Element of the city of Johnson City’s Comprehensive Plan, 2004 • Planning Charrettes, Bruce Race of RACESTUDIO, 1996
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Johnson City Comprehensive Plan Downtown Revitalization Element INTRODUCTION
PLAN BOUNDARY: THE CORE
The boundaries of the downtown core area were determined by consensus of the Johnson City Development Authority’s Physical Plan Task Force and adopted by the National Trust for Historic Preservation and the Tennessee Main Street Program as Johnson City’s Main Street District. These boundaries are identified as the “Downtown Core” and are depicted on Map 1. This boundary is used for the Downtown Revitalization Element since it includes key properties that have potential for redevelopment and that maintain a close, community environment for the downtown.
The overall general boundaries are an approximate area formed by a five minute walk in any direction from the intersection of Market Street and Buffalo Street. The area formed by this distance is approximately a ¼ mile radius or ½ mile diameter circle adjusted for natural barriers and existing overlapping neighborhoods. Where neighborhoods overlap, the lines between them are more difficult to delineate and define.
The total area formed by the ½ mile diameter circle covers approximately 125 acres of land. Of this, 48.2 acres (38.5 percent of total) are associated with overlapping neighborhoods and existing physical barriers (e.g. State of Franklin Road and I-26), leaving 76.82 acres of land in the core area. This remaining land defines the amount of land in this study as the Downtown Core or “downtown neighborhood.”
The boundary line may require minor adjustments in the future in order to accommodate adjacent property owners and to account for errors which might have occurred in defining the boundaries in this study. However, it is intended that the primary core area not be extended beyond minor changes in the future in efforts to maintain the five minute walk and the presence of a physically identifiable edge. The primary related component of the downtown neighborhood to adjacent neighborhoods is through their connectivity to the downtown neighborhood.
The overall placement of the Downtown Core in the greater context of the city and the region gives a perspective of the downtown neighborhood to the adjacent neighborhoods and corridors. The Downtown Core represents the traditional, historic Downtown Core of Johnson City where neighborhoods developed along the outskirts. Today, there are five centrally-located neighborhoods immediately surrounding the Downtown Core. They include: Watauga and Unaka Avenues Neighborhood, East Davis Neighborhood, Langston and Hinkle Neighborhood, Highland Park Neighborhood, and the Tree Streets Neighborhood. These neighborhoods provide the Downtown Core with the supporting network that originally utilized the downtown as their central business district. Serving the needs of the surrounding neighborhoods through goods and services, recreation, and outdoor activities are paramount to the Downtown Core’s success.
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Johnson City Comprehensive Plan Downtown Revitalization Element INTRODUCTION
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Johnson City Comprehensive Plan Downtown Revitalization Element INTRODUCTION
From a greater perspective, the Downtown Core is surrounded by East Tennessee State University, the Med Tech Corridor, the Veteran’s Administration Hospital, the Johnson City Medical Center, the Interstate 26 corridor, the 11-E By-Pass, and the State of Franklin corridor which encircles a portion of the entire city. Regionally, the Downtown Core is surrounded by western North Carolina, southern Virginia, eastern Kentucky, and the Smoky Mountains of East Tennessee. Such placement puts the Downtown Core at an advantage to the large mass of population that the Downtown Core has the potential to attract.
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Johnson City Comprehensive Plan Downtown Revitalization Element GOAL AND OBJECTIVES
Many sources provide guidance as to what Downtown Johnson City should be: the Planning Commission, the City Commission, the Johnson City Development Authority (JCDA), the Tennessee General Assembly, the property owners, and the citizens themselves. Choosing the desired result is essential in the development of recommended actions and policies to be followed.
In a Citizens Survey conducted by the Planning Commission in 2003, sixty (60) percent of local citizens felt that an “Active, healthy Downtown Business District” was important to the quality of life in Johnson City, compared to 18 percent who felt that Downtown’s importance was low or very low. That survey also asked what activities would attract citizens to Downtown more often. The results are summarized below in Table 1.
Table 1. Desired Downtown Activities
Restaurants ...... 25 % Entertainment / festivals / nightlife ...... 21 % Shopping / department stores ...... 18 % Specialty shops / arts and crafts ...... 9 % Museum / cultural / performing arts ...... 9 % Improved appearance and safety ...... 4 % Professional businesses / offices ...... 4 % Amphitheatre / open space ...... 4 % Parking...... 3 % Nothing ...... 2 %
Source: Citizens Survey, 2003, Johnson City Planning Department
The same survey asked “If you do not visit Downtown Johnson City, why? Table 2 summarizes the most frequent answers.
Table 2. Reasons for Not Visiting Downtown
Nothing of interest ...... 35 % Limited Parking ...... 15 % Limited services (shopping, restaurants) ...... 15 % Unsightly appearance ...... 14 % Unsafe ...... 12 % Inconvenient / accessibility ...... 8 % Source: Citizens Survey, 2003, Johnson City Planning Department
9 Johnson City Comprehensive Plan Downtown Revitalization Element GOAL AND OBJECTIVES
In addition to the Citizens Survey, the Planning Commission’s own Vision Statement contains as one of its goals “To revitalize historic Downtown Johnson City as a vibrant, prosperous, and mixed-use district.”
Objectives were also identified in earlier studies and projects. During 1996 and 1997, the city undertook the study of a potential cultural district downtown, anchored by a proposed new performing arts center. Two parts of that effort produced descriptions of what Johnson City citizens would like to see included in their downtown. First, a series of planning charrettes led by consultant Bruce Race of RACESTUDIO produced three primary goals:
• to create pedestrian-oriented places; • to create active streets and places; and • to provide activities with “pizzazz”.
In a follow-up report produced by the city’s Planning Department (Proposed Design Guidelines, 1998) specific design guidelines were based on these objectives:
• creating an identifiable physical style for the district; • creating a pedestrian-oriented physical environment that is interesting, safe, and fun for people; and • creating a cultural center for the region which is a magnet for people and where public investment in civic facilities spawns private investment in buildings, shops, and businesses.
The commitment to a healthy, active downtown was also a key outcome of the charrettes conducted in February 2000 by Dover-Kohl & Associates as part of a land use and transportation planning project. Revitalizing downtown Johnson City was the most frequently mentioned “number one idea” during that exercise, closely followed by “great streets” and “connected greenspace”. Together these three ideas made up 92 percent of the responses from several hundred citizens who took part in the charrettes. In a similar charrette exercise, “Creating a strong, memorable city center” was one of the five most important themes identified by citizens of Johnson City.
Important goals have also originated from organizations whose primary focus is Downtown. The Johnson City Development Authority was created in the late 1980s to lead economic redevelopment efforts throughout the city, especially in Downtown. Following several broad-based citizen workshops, the JCDA adopted a Vision Statement for Downtown which called for an economically prosperous mixed use district of retail, offices, housing, the arts, and technology. Out of this vision statement came eight goals for the JCDA, including:
1. To promote the economic redevelopment, removal of deleterious land uses, reinvestment, raising of capital, generation of revenue, and the elimination of urban blight and decay;
10 Johnson City Comprehensive Plan Downtown Revitalization Element GOAL AND OBJECTIVES
2. To conduct an ongoing planning process that results in a “plan of improvement” for the revitalization of downtown Johnson City;
3. To recommend governmental action where necessary to promote the modernization and general improvement of such areas as the central business district;
4. To finance, acquire, own, lease, and/or dispose of properties so that the authority may maintain and increase employment and redevelopment opportunities;
5. To make recommendations, serve as a catalyst for, and implement programs and projects that improve the business climate, enhance the economic well-being and quality of life in Johnson City, by focusing community resources in underutilized areas of the city;
6. To provide assistance to investors and businesses seeking to locate and expand in Johnson City;
7. To build public/private partnerships for the revitalization and redevelopment of underutilized property; and
8. To conduct public relations activities which inform the general population and local decision makers regarding the needs and benefits of downtown Johnson City.
On a broader scale, the Tennessee General Assembly established a comprehensive growth policy for the state that “… minimizes urban sprawl” when it adopted Public Law 1101, the Growth Law, in 1998. Maintaining active, prosperous downtowns is clearly important to this goal of minimizing urban sprawl.
Input from the City Commission is identified in its 2001 Strategic Plan, which identified the goal of achieving a revitalized downtown. More specific objectives were: • More healthy, viable businesses in downtown; • Fewer vacant, rundown buildings; • Improved quality of streets, sidewalks, streetscape; and • People going downtown to live, to work, to be entertained.
The defining feature of a downtown is the size, scale, and location of its buildings. Usually, at least two stories, these buildings are oriented+5.51 to the street, with doors opening to the sidewalk and large windows for displaying merchandise. They often exhibit architectural variety rather than uniformity of design. In addition to windows, which display retail merchandise, visual interest is created through architectural details and variety, sidewalk cafes, street vendors, outdoor display or sale of merchandise, and public art. The positive ratings of the images which follow illustrate that Johnson City residents prefer this visual interest and activity in their downtown.
+2.06+2.06 11 Johnson City Comprehensive Plan Downtown Revitalization Element GOAL AND OBJECTIVES
The term “streetscape” refers to all the components of the right-of-way and exterior 1 buildings facing the street – on-street parking, light poles, landscaping, traffic signals, benches, water fountains, mail boxes, and trash receptacles. Images with attractive, functional streetscapes receive favorable ratings from citizens. Street trees show up frequently in positive images of town centers, although they are not always possible in older downtowns with limited space between the curb and building wall.
Based on the foregoing sources, the following goal and objectives for downtown Johnson City are established to provide direction to an overall downtown revitalization program.
GOAL
TO IMPROVE THE ECONOMIC AND SOCIAL VITALITY THAT ENHANCES THE QUALITY OF LIFE IN JOHNSON CITY BY STRENGTHENING THE DOWNTOWN AS A FOCAL POINT FOR THE ENTIRE COMMUNITY.
OBJECTIVES
1) Encourage mixed-use developments;
2) Create a physical setting that is comfortable, convenient, visually interesting, and secure;
3) Encourage shared-parking design, common access, and circulation features between adjoining properties to maximize parking arrangements, encourage a greater utilization of existing parking areas, and expand access to safe pedestrian networks;
4) Encourage the renovation and rehabilitation of existing buildings and storefronts;
5) Improve stormwater management and prevent future flooding in the downtown; and
6) Build public/private partnerships that result in the redevelopment of underutilized property and projects that achieve maximum benefit from such partnerships.
12 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
LAND USE
The most basic characteristic of downtown is the land itself – how much area is included; how it is used for business, streets, parking lots, churches, etc.; who owns it, and what is its value.
As previously mentioned, the Downtown Core (refer to Map 2) contains over 75 acres, which is used for a variety of activities. The largest percent of developed land is streets and sidewalks totaling 21.7 acres or 28 percent. The second largest land use category is commercial land with 16.4 acres at 21.7 percent. Downtown has lost most of its residential population to the suburbs with approximately one acre used for residential purposes. Table 3 summarizes the amounts of land dedicated to various categories of land use.
It should be noted that this table reflects existing land use only on the first floor of downtown buildings. Building use on upper floors may contain a mix of uses varying from residential to offices or storage space. However, the greatest use on upper floors is generally devoted to residential use or storage.
Table 3. Existing Land Use, Downtown Johnson City, 1998
Land Use category Area in acres Percent of total
Transportation, Communication, & Utilities Streets & sidewalks 21.7 28.3 Parking, rail, et al. 13.2 17.2
Cultural, Entertainment, 13.1 17.1 & Recreation
Commercial 16.4 21.4
Manufacturing 2.1 2.7
Residential 1.2 1.6
Vacant / Undeveloped 9.1 11.8
Total 76.8 100.0 Source: JCDA Physical Task Force
13 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
14 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
ECONOMIC ACTIVITY
Main Street Program Activities
The Main Street Approach to downtown revitalization, as adopted by the city through the Johnson City Development Authority (JCDA), is a community-driven, comprehensive methodology used to revitalize and encourage economic activity within older, traditional business districts throughout the United States. The underlying premise of the Main Street Approach is to encourage economic development within the context of historic preservation in ways appropriate to today’s marketplace. The Main Street Four-Point Approach™ is a comprehensive strategy tailored to meet local needs and opportunities. It encompasses work in four distinct areas - Design, Economic Restructuring, Promotion, and Organization – that are combined to address all of the commercial district’s needs. The Main Street Approach is incremental and is not designed to produce immediate change. In order to succeed, a long-term revitalization effort requires careful attention to every aspect of downtown – a process that takes time and requires leadership and local capacity building.
The JCDA follows this approach by establishing yearly work plans that are directly related to one of the four approaches. The activities of each approach, as adopted by the JCDA Board of Commissioners, flow from the following objectives:
1. Business Improvement A. Provide financial incentives for downtown business/development; B. Ensure security and safety for downtown business and residents; and C. Provide growth and development tools for downtown business.
2. Design A. Define and expand the arts and entertainment district; B. Develop plans for Fountain Square park; C. Address flood control; D. Address transportation corridors that link downtown; E. Revitalize Downtown Square; and F. Define and implement streetscape standards.
3. Marketing and Promotion A. Stimulate a positive image of downtown to the public; B. Provide assistance to potential developers and new and existing businesses; C. Create a marketing strategy to recruit new business; and D. Promote downtown special events.
4. Organization A. Increase the number of participants in the Main Street Program; B. Increase the amount of funding sources; and C. Strengthen communication within and outside of the organization.
15 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
These objectives serve as the basis for Main Street activities that strive to ultimately improve the economic quality of life by strengthening the downtown within the greater community.
Property Tax Revenues
The property tax values of the downtown district in 1999 had a total appraisal value of $14.9 million. In 2004, property tax appraisal values within the same downtown district had increased to $26 million. The amount of growth from 1999 to 2004 reveals that property values increased at an average of 14.9 percent per year, for a total of 74.5 percent over the 5-year period.
Rehabilitation Trends
With the introduction of the Main Street Program in 2004, the scale of rehabilitation projects has increased, while the actual number of buildings undergoing rehabilitation has decreased. The amount of private building rehabilitation projects in the Downtown Core area (Main Street District) declined from 24 projects in 2004 to 19 projects in 2005. However, the dollar amount of private building rehabilitation projects in those same years increased drastically from $990,000 in 2004 to $4.8 million in 2005. This level of growth reveals the trend currently found in the Downtown Core, that rehabilitation projects are becoming larger scale projects, a trend indicative of the major renovations underway.
Recruitment and Business Growth Trends
Business growth and recruitment has shown a positive trend in the Downtown Core in recent years. During the mid-1900s, business growth was experiencing a downward trend as most businesses were vacating the Downtown Core. However, with the recent efforts underway to revitalize the district, the Downtown Core has been experiencing an upward trend in the number of businesses choosing to relocate downtown. In 2004, there were 170 businesses located within the Downtown Core. After 23 new businesses moved into the district, and 16 moved outside, the area experienced a net gain of 7 businesses, bringing the total to 177, or a net percentage growth of 4 percent. The number of jobs directly related to the 23 new businesses and the 170 existing businesses in the area increased by 112 from 2004 to 2005, bringing the total number of jobs in the Downtown Core from 1,434 in 2004 to 1,546 in 2005, a growth of 7.8 percent. This trend reflects the positive growth of businesses presently occurring.
JCDA Programs to Assist Prospective, New, or Existing Businesses
As a direct benefit of following the Main Street Four-Point Approach to downtown revitalization, the JCDA provides programs and serves as a resource to assist prospective, new, or existing businesses that are relocating or expanding in the Downtown Core. Such efforts fall under the JCDA’s “Business Improvement and Economic Restructuring” Approach of the Four-Point Approach. Internal and external programs the JCDA utilizes to assist businesses include: 1) the Downtown Johnson City Redevelopment Loan Pool
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Program; 2) the Downtown Johnson City Available Properties Website; 3) the Strategic Alliance Partnership with the U.S. Small Business Administration; 4) the Tennessee Department of Economic and Community Development’s (ECD) Tennessee Small Business Energy Loan Program; 5) the First Tennessee Development District’s Business Development Loan Fund; 6) and Tennessee’s Economic and Community Development’s Business Enterprise Resource Office technical, financial, and management assistance.
The Downtown Johnson City Redevelopment Loan Pool Program was introduced in December 2005 as an incentive tool for acquisition and/or rehabilitation of downtown properties. The loan program consists of a consortium of eight local banking institutions that each placed $60,000 into a pool to be used solely for downtown business development purposes. The program provides a financial opportunity for small business owners, property owners, or investors to purchase or renovate a downtown property or to purchase fixed equipment for the direct purpose of business creation, expansion or retention. The program provides a low-interest loan of up to $25,000 to be applied toward the down payment and/or closing costs for an existing or new business located within the Downtown Johnson City Redevelopment District. The loan is administered through the Northeast Tennessee Economic Development Corporation, a non-profit lending arm of the First Tennessee Development District.
The Downtown Johnson City Available Properties Website at www.jcdevelopment.org was initiated in May 2006 as a marketing tool to be used by Downtown Core property owners. The property database website was established as a tool to assist with furthering economic development within Johnson City’s Main Street District1. The properties that are accepted are only those located within the Downtown Core boundaries. Information may only be inputted by the property owner or his/her designee and is maintained by such person. This tool is provided at no cost to any property owner within the Core district and serves as a stimulus for potential investors and businesses searching to locate into the Core.
On February 16, 2006, the JCDA became a Strategic Alliance Partner with the United States Small Business Administration (U.S. SBA). As a result of this partnership, the JCDA serves as a local resource for any materials and/or workshops held by the U.S. Small Business Administration. The U.S. SBA’s Loan Guaranty Programs provide a key source of financing for viable small businesses that have potential but cannot qualify for loans from traditional sources. Financing programs provided by the U.S. SBA vary according to a borrower’s financial needs, and are available for downtown business owners.
The Tennessee Small Business Energy Loan Program is provided through the Tennessee Department of Economic and Community Development and is available for property owners wishing to upgrade their windows, lighting, or heating and cooling systems for energy efficiency in an existing building. Direct loans of up to $300,000 at a zero (0) percent annual interest rate are available to qualifying property owners. This
1 The Main Street District and the Downtown Core area follow identical boundaries.
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program is available at a zero (0) percent interest rate to Johnson City businesses due to their being located in a Tennessee Certified Main Street Community.
The First Tennessee Development District offers a Business Development Loan Fund as fixed asset financing and permanent working capital at low interest rates to businesses with job creating ability, and a need for supplemental financing. This loan fund is also available to downtown businesses, serving as a local resource for existing business growth.
Finally, the JCDA partners with the Tennessee Department of Economic and Community Development’s Business Enterprise Resource Office (BERO) to provide monthly one- on-one consultations with businesses located in the downtown district. BERO provides technical, financial, and management information assistance to small, minority, and women-owned businesses, focusing on four main areas of development to achieve its mission. Those four areas include: providing technical assistance (business planning, licensing, certification, financial assistance expansion assistance and other special needs); assisting with procurement opportunities; driving manufacturing initiatives; and creating export opportunities.
Federal Historic Preservation Tax Incentives
Federal Historic Preservation Tax credits are a source of financing available to downtown Johnson City properties to assist with financing the gap between the project costs and the amount a bank is willing to lend to a developer. The federal tax incentive program that currently applies to preservation is the Rehabilitation Investment Tax Credit (or RITC). The RITC reduces the cost of restoration and rehabilitation to the owner of an income producing historic property as an income tax deduction. Federal Historic Preservation Incentives are available for buildings that are National Historic Landmarks that are listed on the National Register of Historic Places, or listed as a contributing structure to a National Register Historic District. In June 2003, the National Park Service designated two National Register Districts in the Downtown Core area (see Map 3). The Johnson City Commercial National Register District encompasses 79 commercial buildings located mainly along East Main Street, East Market Street, Buffalo Street, and Tipton Street. The Johnson City Warehouse and Commerce National Register District encompasses 26 commercial structures and warehouses mainly along West Market Street and Commerce Street. In addition, Thankful Baptist Church / Princeton Freewill Baptist Church, 104 Water Street, is listed individually on the National Register.
The Rehabilitation Investment Tax Credit is a major preservation tool. Certain costs that are incurred due to the rehabilitation of an old structure are eligible for a tax credit. There are two credit rates available: 20 percent for an historical structure and 10 percent for a non-historic structure.
To be eligible for the 20 percent credit, the building must be listed on the National Register of Historic Places or listed as a contributing structure to a National Register
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19 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
Historic District. The rehabilitation project must meet the “substantial rehabilitation test,” which means the developer must spend the adjusted value of the building or $5,000 whichever is greater. The figure is derived by subtracting the value of the land from the cost of the building and land in combination. The rehabilitation must meet The Secretary of the Interior’s Standards for Rehabilitation and Guidelines for Rehabilitation Historic Buildings. After the rehabilitation, the structure must be income producing for five years (commercial, rental, or bed & breakfast).
To be eligible for the 10 percent credit, the structure must have been constructed prior to 1936 and is not considered historic. The structure must retain 50 to 70 percent of external walls and 75 percent of the internal walls, and must meet the “substantial rehabilitation test” as in the 20 percent credit. Finally, the structure must be used for five years as income producing, but does not include housing.
The level of economic activity in the Downtown Core is increasing, as demonstrated by the history of recent property tax revenues generated, the number of new jobs, the number of new businesses, and the broad range of economic development programs all underway and increasing within the Downtown Core.
BUILDING CHARACTERISTICS
The physical parameters of buildings, especially their placement relative to adjoining streets, are keys to defining the character of the streets and enhancing their appeal. The height and setback of buildings define the street edge and convey a sense of being in an urban rather than a suburban place. In addition to its location and bulk, the exterior appearance of a building contributes to the image of the setting and to the accessibility and appeal of the function within the building.
The preservation and renovation of buildings are of major concern to retaining the character and historic design of downtown Johnson City.
Building and Fire Codes
Renovating older buildings is often difficult or inordinately expensive when they must be brought up to full compliance with modern building and fire codes. Section 3401.5 of the Standard Building Code, which is used by Johnson City, provides that the technical codes shall not be mandatory for “… existing buildings or structures identified and classified by the state or local jurisdiction as historical buildings …” when judged by the building official to be safe and in the public interest.
When reviewing building rehabilitation plans, the city of Johnson City’s Codes Enforcement Division and Fire Marshal’s Office are bound to codes approved by the City Commission. The Standard Building Code, the Life Safety Code, and the National Fire Protection Association Code and Standards guide officials in their decisions regarding the rehabilitation of buildings. Many existing buildings were constructed before the advent of modern building codes yet they may be sound and structurally safe. When new
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construction is the benchmark, it is difficult to apply these codes rationally and predictably to existing structures. The cost of bringing historic buildings into compliance with the current codes required for new construction can be unpredictable in terms of cost and prohibitive. The Chief Building Official and Fire Marshal are granted latitude by the currently adopted building code and National Fire Protection Association Code and Standards when applied to the rehabilitation and renovation of historic designated buildings.
When considering the renovation of an existing building, discussions with both the Codes Enforcement Division and the Fire Marshal’s Office is recommended before any design or construction is started. Working with both of these city divisions will help to avoid surprises and possible problems during design and construction. These divisions have demonstrated a willingness to work with property owners, developers, architects, and contractors.
Building Placement
The building placement requirements in the B-2, Central Business, district provide that all buildings may be set back no further than five (5) feet from the front lot line for at least ninety (90) percent of the front facade. A minimum of twenty-five (25) percent of the street level façade of civic buildings and sixty-five (65) percent of all other buildings must consist of windows, doors, display areas, or similar architectural features.
In the Downtown Core, most pre-1950s buildings were built to an urban scale and retain that relationship to the street today. A few downtown buildings, both public and private, have lost that characteristic and are at least partially oriented to adjacent parking lots. These include the Johnson City Press building on Boone Street, the new Public Library, the First Tennessee Bank on West King Street at North Roan Street, and a one-story office building on Colonial Way at East Market Street.
Probably, the single-most important determinant of an inviting urban setting is the spatial relationship between the street and adjoining buildings. When buildings are set back and parking is allowed in front, the typical commercial strip is created, which is uninviting, and even hostile to pedestrians. With the exception of certain civic or institutional buildings, all buildings should be built to the edge of the sidewalk, except for small pedestrian plazas or outdoor café seating.
Building Height
Building height in the downtown varies. The tallest building, which stands ten stories, is the John Sevier Center (formally the John Sevier Hotel). The next tallest building is the Hamilton Bank Building at seven stories. Of the remaining structures, 36 percent are two stories, 26 percent are one story, 15 percent are four stories, and 3 percent are one and one-half stories. The data concludes that the majority of existing buildings downtown are two stories, with one-story buildings comprising a majority of the remaining structures.
21 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
The height of buildings in an urban setting contributes to a sense of scale that defines the public space along the street and encourages pedestrian activity. In downtown Johnson City, two-story buildings are most common, with others containing one, three, and four stories. As stated, the John Sevier Center, at ten stories, is a downtown landmark. The Unaka and City National Bank Building (later the headquarters of Hamilton Bank and now office and residential condominiums) is seven stories and the King’s building is five stories. Rooftop view of downtown buildings
Exterior Building Treatment
The buildings in the Downtown Core exhibit a wide variety of exterior treatments including: brick, stone, aluminum siding, and wood. Some are traditional downtown buildings with primary orientation to the street. Others are less urban, with customer entrances facing parking lots rather than adjoining sidewalks. In some cases, original facades and windows have been covered up with siding or plywood, masking the inherent charm and architectural uniqueness of the building. In other cases, these original storefronts have been retained or restored.
Properly locating buildings along the street edge is necessary to create an interesting downtown environment, but it is not by itself sufficient. The exterior components of the structure, especially doors, windows, awnings, entrances, steps, shutters, columns, and other architectural features are critical to making a street attractive and inviting to pedestrians. Unbroken, blank walls are dull, attract graffiti, and are uninviting.
Materials and Architectural Style
The traditional Downtown Core represents the city’s architectural history in materials, construction style, and ornamentation. These elements should be continued in the Downtown Core area, since they remain available, functional, and distinctly identifiable as a traditional downtown.
For new construction, traditional materials such as brick, terra cotta, and cut stone should be encouraged. Other materials with a matte finish and muted colors resembling stone or brick may also be considered.
Throughout downtown, buildings were constructed primarily in the late 1800s to early 1900s. The style of architecture lends to the character and aesthetics of downtown Johnson City and serves as an existing condition of the design approach to the downtown. Due to the various times at which the buildings were constructed, several architectural styles are found in the downtown. The following architectural styles are present in
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downtown Johnson City: Gothic Revival, Colonial Revival, Neoclassical, Italian Renaissance, Stripped Classical, and Victorian Romanesque.
Examples of the Gothic Revival architectural style include the original Thankful Baptist Church, while Colonial Revival is evident in the building at 212 East Main Street. The Neoclassical style, noted by full-height porches supported by classical columns, is depicted at the former U.S. Post Office Building, now used by Channel 11-WJHL at 338 East Main Street. The Hamilton Bank Building at 200 East Main Street represents Italian Renaissance style, while the historical People’s Bank building, now a multi-residential building at 301 East Main Street, has Stripped Classical influence. The historic Wilkes Insurance Best Building (126 Spring Street), a key landmark building in downtown, is of Victorian Romanesque architectural style.
Presently, many of the architectural components have been destroyed due to neglect in many buildings throughout the downtown. Only 14 percent of the properties listed in Main Street Johnson City’s program study area have been recently renovated. In a larger portion of the downtown, 24 percent of the buildings were considered dilapidated, 28 percent considered deteriorated, and 48 percent were considered in good condition.
TRANSPORTATION
Parking
Adequate and convenient parking is essential for downtowns to ensure that patrons will visit the stores, festivals, restaurants, entertainment venues, etc. A misperception of limited parking and safety will determine whether or not the parking lots will be utilized efficiently. Signs directing visitors to parking is important to downtown visitation.
The Downtown Core area currently has more than an adequate amount of parking within walking distance of many destinations. However, many people have stated there is not enough parking for everyone. Also, many people are concerned about the safety of the parking lots where they must not only park their cars, but to travel through as well to reach the main attractions of the area.
Public Parking
Downtown includes ten public parking facilities. Of the ten, seven are considered to be in the defined core study area. They are: 1) Johnson City Public Library; 2) lot at corner of King and North Roan streets; 3) West Market Street lot; 4) West Main Street lot; 5) Downtown Parking Garage; 6) Downtown Square lot; and 7) Transit Building lot. The total available parking in these seven lots is 734 spaces (see Chart 1).
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Chart 1: Public Parking Lots The three lots that do not fall within the boundaries are: 1) Cherry Street lot; Library 2) I-26 lot; and 3) Water Corner of King/Roan Street Street lot. These lots West Market Lot were included in the West Main Lot study because of their Parking Garage relevant location and Downtown Square Lot proximity to serve the Cherry Street Lot needs of the downtown. I-26 Lot The Cherry Street lot is Water Street Lot especially well-situated Transit Lot to serve many of the businesses in the Core area. The three lots total Source: Johnson City Planning Department 313 parking spaces. The ten lots total 1047 available parking spaces with the largest parking facility being the parking garage with 300 spaces located in the center of the study area (see Map 4).
Table 4: Public Parking Lots Total Library Corner West West Parking D-town Cherry I- Water Transit Public of Market Main Garage Square Street 26 Street Lot Parking King/ Lot Lot Lot Lot Lot Lot Roan Street 1047 118 43 59 59 300 118 213 56 44 37 Source: Johnson City Planning Department, 2006
Private Parking
Currently, in the B-2 Central Business District, businesses are not required to provide parking spaces for employees or customers. This policy allows buildings to be constructed on lot lines creating densities that are characteristic of downtown districts. Typically, in many downtowns, parking is provided by parking garages, public lots, and on-street parking. However, many developers have constructed buildings in the Downtown Core area that are typical of sprawl-like development. A parking study was conducted in February 2006, and it was determined that 1,163 private parking spaces are available throughout the Downtown Core area.
Bicycle Parking
Similar to many older central business districts, the Downtown Core is built at an urban scale, with narrow streets, sidewalks, and buildings constructed close to the street. Dedicated bike lanes were not a priority when the Downtown Core was laid out, so none exist. However, the relatively low-speed roadways are conducive to on-street cycling.
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25 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
The Bikeway/Greenway Plan has designated Buffalo Street as part of the proposed “Johnson City Bikeway Loop”, connecting the downtown to points of interest such as East Tennessee State University, the Veterans Administration Campus, the Johnson City Medical Center, Med Tech Corridor, and north Johnson City.
Bicycle parking facilities are currently available at the downtown library and Downtown Square parking lot. Appropriate locations for future bike racks would be in close proximity to places of employment and areas along the proposed bike loop (Refer to the Bikeway/Greenway Element of the Comprehensive Plan).
Transit
Johnson City Transit (JCT), a department of the city of Johnson City, began operations in 1979 as the first new municipal transit system in Tennessee since World War II. JCT, located in the Downtown Core area, operates fixed-route services, paratransit services for individuals with disabilities, and various demand-response call-in services. The transit system accommodates over 1,100 passengers per day. JCT provides bus service in the city to all major commercial and institutional facilities including: East Tennessee State University; the Mountain Home Veterans Administration Center; hospitals; shopping malls and centers; and government offices. In addition, the major residential neighborhoods and group housing complexes are served.
One-Way vs. Two Way Streets
Currently, the Downtown Core has five major gateway streets (see Map 5) that enter and exit the core area. They are: 1) East and West Main streets; 2) East and West Market streets; 3) State of Franklin Road; 4) Buffalo Street; and 5) North and South Roan streets. Of the five, three operate in a two-way direction, while the other two, Main and Market, are one-way streets. Main Street conveys vehicles in a west to east direction of travel, while Market Street is an east to west travel direction. Many groups have explored the feasibility of converting the one-way streets to two-way streets; however, many factors weigh into such a decision, such as: cost; traffic signalization; on-street parking; unloading zones, and other logistical factors.
STREETSCAPE
Gateways
The gateways into a community define the beginning and the end of the boundaries surrounding that community. Gateways present the first impression of a community and set the tone for the area following the gateway. The Downtown Core is an area that stands without definitive entryways. Entrances into the Downtown Core should let pedestrians, commuters, and visitors know that they are entering a special, historic, and unique district of Johnson City. Currently, there are no physical “announcements” or welcoming signage into the Downtown Core. Gateways identifying and announcing entrance into the Downtown Core community should be established and strengthened.
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Key components are visual, including: signage; landscaping; wiring; lighting; cleanliness; and building maintenance.
As identified by the Johnson City Development Authority’s Physical Task Force, and based on the Johnson City Cultural District Design Guidelines report, there are five primary entryways into the Downtown Core. They are indicated on Map 5 and are at the following locations: 1) Intersection of North Roan Street and West Fairview Avenue; 2) Intersection of I-26 and East Market Street; 3) Intersection of South Roan Street and South State of Franklin Road; 4) Intersection of Buffalo Street and South State of Franklin Road; and 5) Intersection of South Boone Street and West Main Street.
Map 5: Existing Gateways
Source: Johnson City Development Authority
These locations provide space for markers for the destination point of the Downtown Core, notifying travelers, visitors, and others that they have arrived into the Downtown Core. Identification of the Downtown Core through gateway signage will provide a sense of place and destination.
Signage
Signs are used to identify business locations, communicate the nature of the business, and to advertise products and services available there. Since the primary purpose of signs is to attract the attention of customers, businesses often compete for attention by using larger, taller, and more noticeable signs. If uncontrolled, such sign competition can result
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in an excess of garish signs that are out of character with their surroundings, detract from the appeal of the area, and block views of buildings and vistas.
When properly designed and placed, however, business signs can contribute humor, lively color, a sense of elegance, or a historic theme along with their basic function of providing necessary information.
Signs are a way for places to identify themselves and what they do, as well as show location. If signage is not controlled, it can take over the overall character of the downtown. Since pedestrian-friendly areas are the main focus, signs should cater to both pedestrians and those traveling by bicycle or automobile.
Gateway signs provide visitors to the downtown area a critical first impression of what lies ahead. Currently, there are not any gateway signs to the downtown area of Johnson City. Travelers only know they have entered the area by the streets and building layout.
In the Downtown Core, limited wayfinding signs for major attractions, corporations and destinations cause confusion and frustration for potential patrons. Wayfinding signs provide easy insight for those looking for a particular downtown location. Refer to Map 6 for existing wayfinding and parking signs that are currently in the Downtown Core area.
Limited signs for parking availability provides travelers the misperception that parking is limited in the downtown area. Signs should be easy to read and provide directions to available parking lots.
On-Premise Signs (B-2 District)
Signs for the B-2 district are directed at two audiences - pedestrians and people in vehicles, each of which requires a different type of sign for communication.
Large, tall signs are unnecessary, even counterproductive, in a downtown area, due to the close proximity of buildings, the pedestrian scale, and the slower speed of traffic. The city’s Zoning Ordinance now limits B-2 signs to 25 feet in height and 32 square feet in area. Each business or premise is allowed one freestanding or projecting sign.
Many of the buildings in the B-2 district are built to the edge of the right-of-way, which limits the visibility and use of freestanding signs. For this reason, a large percentage of signs are either wall-mounted or projecting. The most prominent freestanding signs in this zoning district are on parcels with larger setbacks, especially those oriented to high volume traffic Non-conforming sign streets such as State of Franklin Road. downtown
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29 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
Signs oriented to pedestrians will become more prominent as downtown develops and new businesses open. Under-awning signs at the business entrance are especially effective where awnings or canopies block the view of projecting or wall signs. In addition to under-awning signs, the Zoning Ordinance currently allows signs on awnings and signs which project from the building into the right-of-way, both of which are oriented to approaching customers. Wall signs can also be effective, but their visibility is often limited.
A sandwich board sign is a portable sign consisting of two boards hinged at the top, usually placed on a sidewalk within Sign oriented to the public right-of-way. A well-made and well-placed pedestrians sandwich board can be especially effective for restaurants, which may have changing menus or specials, and art galleries with featured artists. However, too many sandwich boards can clutter the sidewalk, interfere with pedestrian movement, and block views of other shops. Currently, the city’s Zoning Ordinance does not permit sandwich board signs.
Additional guidelines regarding materials and design will help ensure that signs enhance the character and appearance of downtown. These guidelines, which should be incorporated into the Historic Zoning District, should address the scale of signs in relation to buildings, recommended sign materials, and colors. The use of local materials such as brick and wood, traditional craft themes such as woodcarving, musical instrument making, and quilting, and similar regionally unique styles should be encouraged. Mass- produced, highway-oriented signs should be discouraged.
Excessive or improper lighting can also detract from the appearance of downtown and in some cases can be hazardous. Spotlights should be carefully directed or shielded to minimize glare. However, lighting can also create a lively mood in an entertainment, arts, and dining district. The use of intermittent or moving lighting in “marquee” signs and the use of neon signs in various colors should be encouraged to help identify the district as a place with “pizzazz”.
Off-Premise Signs (Billboards)
Although new billboards are prohibited in Johnson City, a number of non-conforming billboards are within or visible from the Downtown Core area. These billboards are not in character with the development of the Downtown Core and detract from its desired image. Some of these billboards are relatively inconspicuous today but may become more Non-conforming billboard downtown prominent as new development takes place.
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Streetscape Elements
Sidewalks
Sidewalks are an important aspect when discussing pedestrian friendly areas. A well- integrated network of sidewalks will encourage pedestrian activity. It must be easy to get from point A to point B by means of safe and efficient sidewalks and crosswalks. Through the creation of pedestrian-friendly crosswalks, the city is expressing the importance of pedestrians in the downtown. The appearance and condition of sidewalks also is a major factor in the redevelopment of the Downtown Core. Sidewalks should match the design of downtown buildings and roads. Private development is hindered if funds are not invested in the proper maintenance of sidewalks and crosswalks.
The expense associated with redeveloping crosswalks can vary greatly depending on which method is chosen. The method that is least expensive and that has minimal maintenance is adding color to concrete before its pouring and/or stamping. The more expensive method of installation and maintenance is associated with the laying of bricks or cobblestones; however this method can also be used as a traffic-calming technique. Downtown Sidewalk The Downtown Core has a well-integrated network of sidewalks, but it is not pedestrian friendly. The Public Works Department has rated many segments of the network as poor in appearance and condition. The sidewalks are patched throughout the downtown with materials that are different in color and/or texture, which takes away from the overall appearance of the sidewalks.
Buffering
To continue to maintain the desired image of downtown, activities beyond landscaping must occur. Buffering is the act of concealing what many consider to be “eye-sores” of the downtown area, such as dumpsters, heat pump units, and loading docks. By requiring these items to be screened a more natural appearance of the downtown is created and the aesthetics of the area are improved.
Street Trees
Street trees offer shade to pedestrians and add visual appeal to the overall appearance of the Downtown Core area. Trees in parks will make visits more likely and enjoyable.
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Traffic and Pedestrian Signals
Traffic and pedestrian signals are placed on galvanized steel and green poles with mast arms and underground wiring. The poles follow regulations established by the Manual and Uniform Traffic Control Devices (MUTCD). Pedestrian signals are placed at major intersections to assist pedestrians in safely crossing busy intersections. These regulations are adopted at the Federal, State and Local level.
Crosswalk push buttons
Street Name Signs
Depending on their style, number, and placement, street name signs can have a negative or positive impact on the appearance of the Downtown Core and on the ease with which visitors can find their destinations. Traffic and pedestrian signal poles provide an opportunity to mount street name signs without adding the clutter of additional poles. Street name signs in downtown Johnson City Sign mounted to traffic signal are the traditional bright green color specified in the MUTCD regulations manual.
Street Lights
Even though an area may be an extremely safe place to travel through at night, many will not travel if there is not a perception of safety that is given when an area is well lighted. Adequate lighting is a safety issue that ensures that pedestrians are not afraid to walk downtown at night or through parking lots.
There are currently three different types of street lights in the Downtown Core. Some of the current street lights are lacking adequate illumination for sidewalks and streets. Overgrown trees are also covering some streetlights.
The city, working with the JCDA, selected a style of historical lighting that was in character with the overall image of the Downtown Core. East Main Street and East Market Street were the first areas to receive the new historic street lights. Additional period lighting has been installed in the Downtown Core; however, the lighting of the entire Downtown Core has not been completed. The height of the street lights was determined partly to allow the city’s Park and Recreation Department to display Christmas decorations.
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33 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
At least three different styles of streetlights are found in Downtown. The traditional fixture on the right is replacing the box and cobra head styles on the left.
Street Furniture
Street furniture includes the functional and decorative items that promote the visual theme of the downtown area. These items include trash receptacles, planters, benches, and information kiosks. Research on functions and styles of street furniture should be conducted since there is such variance in the function and style of street furniture. A determination of which style for each item should be used throughout the Downtown Core to ensure a consistent image is created.
Benches and trash receptacles are limited in the downtown area and none of the existing facilities have an historical character. Trash receptacles encourage pedestrians to utilize them instead of throwing trash on the sidewalks or streets. Also, trash bins are more likely to be used if they are spaced appropriately. At least two styles are used in the public spaces in the Downtown Core area.
Benches on the sidewalks and in the parks provide visitors a Two examples of trash receptacles used Downtown comfortable place to relax and
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enjoy the scenery around them. A variety of bench styles are found in the Downtown Core, from all metal to wood-and-metal to concrete slab seats; and from traditional style to decorative to simple and modern. Several examples are illustrated below.
Four styles of benches that are currently used in the Downtown Core Area
Wooden telephone poles are often the only method for posting notices of coming events, lost animals, sales, and other public announcements. Since most utility poles in the Downtown are metal, this communication device is no longer available. One option is the information kiosk, a small structure that can serve as a vending site and as a place for announcements, maps, transit schedules, and other useful information. A modified kiosk stands at the Main Street entrance to Majestic Park.
Downtown planters are common along Buffalo Street, East Main Street, and Market Street. The planters are rectangular shaped boxes created to display vegetation in the Downtown Information Kiosk at Core urban setting. The downtown planters are made of Majestic Park concrete and are functional, but not visually pleasing. Other
concepts should be considered as planters are replaced in the future (see Map 8).
PARKS AND OPEN SPACE
Parks allow for people to come together for events and for social gatherings in the Downtown Core area. They also increase recreation opportunities for those working in the area and provide a welcomed green space.
Fountain Square
The city of Johnson City was originally centered around the railroad tracks that converged in the area referred to today as the Core. As a result, a public square that was originally called “Market Square,” then changed to “Fountain Square” has remained the center point for community events, festivals, and other gatherings. The historic icon “The Lady of the Fountain” served as the drinking fountain for travelers and others passing by and was the icon for public meeting space in the Downtown Core.
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36 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
Downtown Johnson City, 1908
Today, there is no longer a centralized, public square and meeting place in the district. As traffic patterns and automobiles changed the face of the country, downtown Johnson City was no exception. Today, the historic square consists of a large fountain designed for automotive traffic, and there is no square defining the central meeting place of the Downtown Core.
Developing a public square in the Downtown Core as a pedestrian gathering space will improve the community spirit, design, and ambiance of the Core. Located at Buffalo Street, West Main Street, and West Market Street, the square historically served as the public gathering space for the city. Many historic photographs document crowds gathering at the historic spot for the end of war celebrations, political rallies, and “ragtime” festivals.
Majestic Commons
Majestic Commons is located at 239 East Main Street and 132-134 East Market Street and provides a connection between the two streets. It is the location of the former Majestic Theater which was demolished in August 1993 due to neglect. The Commons is the site of the downtown Christmas tree with the gazebo and is used for special events. Events such as the annual Blue Plum Festival and First Fridays take advantage of the park’s green space downtown. The Commons is managed by the JCDA and not the Parks
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and Recreation Department since alcohol is allowed for special events. There is a bench and a kiosk located in the Commons that was designed by East Tennessee State University students.
Earth Day Park
Earth Day Park, 208-210 East Main Street, was established in 1991 and is ¼-acre special use park. The park functions as a pedestrian route between East Main Street and the Downtown Square parking lot. There is an architectural sculpture located in the park and the walkway is 150 feet long.
Spring Street Park
Spring Street Park, 111-113 Buffalo Street, is a ½ acre green space facility surrounded by commercial buildings and parking. The park contains a brick patio area with landscaping and lighting.
UTILITIES
City residents rely on a number of basic services that help define their quality of life and maintain their health and well-being. Water supply and sewage waste disposal involving more than one user and the delivery of natural gas, electricity, and fiber optic services are considered utilities. These utilities are often taken for granted, yet without coordination and conscientious planning for future growth, service may be interrupted, inadequate, or prohibitively expensive. The utilities section addresses electric, fiber optic, and natural gas lines as well as water, wastewater, and solid waste services.
Underground Wiring
Although the utility lines on a number of the streets in the core area are underground, overhead utility lines are common throughout the area. Placing such lines underground is more expensive initially but has several long-term benefits, including: • aesthetically more attractive; • reduced exposure to service interruption due to storms or traffic accidents; and • reduced exposure to safety hazards when lines are downed. Map 9 indicates the locations of overhead utility lines in the downtown core area. A priority list should be established for conversion of overhead lines to underground. The most visible areas and gateways into the district should be considered a first priority.
Electric
Any redevelopment project will need electricity for the project. The Johnson City Power Board (JCPB) states that there is presently adequate power for the Downtown Core. However, if any large redevelopment plan was contemplated, the JCPB would work with the developers to determine need and the provision of service. In the Downtown Core overhead power lines have been relocated underground in the following areas: East and
38 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
39 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
West Main streets; East and West Market streets; North and South Roan streets; Buffalo Street; and Colonial Way. Placing utility lines underground can be expensive, but pays in benefits to the character of the community, such as more attractive landscaping, reduction of interruption of service, and a decrease in safety hazards.
Fiber Optics
In recent years, it has become apparent that fiber-optics are steadily replacing copper wire as an appropriate means of communication signal transmission. Fiber-optics span the long distances between local phone systems as well as providing the backbone for many network systems. Other system users include cable television services, university campuses, office buildings, industrial plants, and electric utility companies.
The city of Johnson City has fiber located downtown that is used for traffic signal purposes. Map 10 indicates the existing locations for fiber optic cables that are used by the city. Currently, four companies have fiber optics located in the Downtown Core area, and can provide services for many business needs. These companies include Charter, Comcast, KMC, and Embarq.
Gas
Gas is another important infrastructure component to encourage developers to invest in the Downtown Core. The current gas system owned by Atmos Energy has excess capacity; therefore the current system could handle a substantial amount of new development. Similar to the JCPB, Atmos Energy would review each new plan that needed large volumes of gas to determine the impact on the current system.
Sewer
Sewer exists throughout the Downtown Core with the exception of a few steep slopes or undeveloped areas. The capacity of the current sewer system is considered adequate for present use with sufficient surplus to accommodate future development.
Water
Water is considered the second most important infrastructure component. Businesses cannot operate without two utilities; electricity and water. Current city water lines are adequately sized for current needs and future needs.
Proper spacing for fire hydrants is a major safety issue in the Downtown Core. The current water flow to the existing hydrants is adequate; however coverage is sparse in some areas of downtown.
40 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
41 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
STORMWATER
The downtown area has a long history of flooding. Brush Creek and King Creek merge into one stream on the northeast side of the Downtown Core. Brush Creek, with the larger water shed, flows through the center of downtown and King Creek along the northern portion of the Downtown Core. Each stream has flooded downtown independently, and they have combined to cause serious downtown flooding. The floodplain for these streams has been determined by the Federal Emergency Management Agency (FEMA), and the combined floodplain covers approximately Picture: Downtown Flood – August 2003 one third of the Downtown Core. The stream culverts are very difficult to maintain and keep clear of debris. Debris along with silt buildup within the culvert system contributes to the flooding problem. This history of flooding, along with recent flooding events is a deterrent to the redevelopment of existing structures and discourages the construction of new buildings. In addition to the inadequate stream culverts, the stormwater collection system that services the streets, rooftops, and open spaces in the Downtown Core is very limited. Due to a lack of capacity to accommodate stormwater this system can be overwhelmed by a summer downpour, resulting in street and occasional building flooding. A combination of watershed management, stream culvert upgrades, local collection system upgrades, and improved maintenance capability should be implemented to reduce to an acceptable level the frequency and magnitude of flooding. If this is done, investment in downtown development would be encouraged and promoted by the level of public investment in its stormwater infrastructure. In late 2003, following simultaneous flooding from both creeks, a stormwater task force of citizens was created by the City Commission to study the need for improving the current stormwater management effort and how to fund an improved stormwater management program. The task force completed its work in December of 2004, recommending a plan to improve stormwater management citywide and with a recommendation that the plan should be funded by establishing a user fee that would be collected through a stormwater utility. In the spring of 2006, the City Commission moved toward creating the stormwater utility by approving a stormwater utility and rate study that will determine the amount for a residential and commercial fee. In June 2007, the first stormwater utility fee statements will be mailed and will be one source of funding that will be used to reduce flooding in the downtown area.
ZONING AND REGULATORY MEASURES
The existing zoning designations of the Downtown Core are mainly that of the B-2, Central Business District, with a few areas of B-3, Supporting Central Business District zoning. These zoning designations permit a mix of uses in downtown properties. Section
42 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
6.15, Central Business District, states that the intent of the B-2 district is to promote a compact urban core with a mixture of commercial, office, institutional, and residential uses which facilitate pedestrian accessibility. The uses currently permitted include single, two, and multi-family residential dwellings, amusements, art galleries, schools, rooming houses, churches, day-care centers, and retirement homes. Libraries, hotels, restaurants, theaters, financial institutions, offices, retail trade, and personal and professional services are also permitted in the downtown.
Although the design of new civic buildings in the Downtown Core will be controlled by the city of Johnson City, additional zoning and design regulations will be necessary to ensure continuity of design and compatibility between civic buildings and new or renovated private structures. Guidelines that address exterior materials, building location, physical dimensions, signage, color, and orientation should be adopted to achieve the cohesive appearance and “feel” of a friendly urban place.
Since civic and institutional buildings have different orientations than commercial structures, zoning and design guidelines should vary for different types of structures. Zoning regulations can ensure that uses, setbacks, signage, and parking requirements are compatible with the pedestrian environment and goals of this element. Design standards for buildings, through some type of special overlay district, should ensure that renovations and new construction are compatible with the desired overall visual appearance for the core area.
Base Zoning
Although development can be controlled through many different zoning approaches, the two existing zoning districts in downtown are already available and are the easiest to implement. The majority of the study area is zoned B-2 (Central Business District), with a small portion zoned B-3 (Supporting Central Business District), as shown on Map 11. The B-2 district is more pedestrian-oriented and permits the types of uses that are generally found in a downtown area.
The B-3 district is more automobile-oriented, since it requires off-street parking and minimum building setbacks, although it does permit all the uses permitted in the B-2 district. The parking, signage, and setback requirements in the B-3 district are more oriented to a highway commercial district and do not encourage the pedestrian atmosphere desired in the downtown core. Although the B-3 district permits the desired uses for downtown, it also allows many uses which are not appropriate, such as self- storage warehousing, auto repair shops, used car lots, and bottling operations.
Historic Overlay
Although land uses and building setbacks can be regulated through traditional zoning, other important elements will require other means of control to achieve the desired appearance and setting. Public space and streetscape improvements, such as landscaping, street furniture, sidewalks, and signage were addressed previously. Another critical
43 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
44 Johnson City Comprehensive Plan Downtown Revitalization Element EXISTING CONDITIONS
component, the actual architectural style and exterior features of buildings, must be regulated by a separate process.
The most effective method to assure that buildings in the Downtown Core contribute to the overall theme and atmosphere envisioned is historic zoning. Specifically authorized by state law and administered by the Historic Zoning Commission (HZC), historic zoning is an overlay zone technique to protect historic structures as well as assure a defined architectural style within the designated district. Under this technique, all exterior changes to existing structures and all new construction must conform to design guidelines adopted specifically for the district. Demolition and relocation of structures within the district must also be reviewed by the HZC, but cannot ultimately be prohibited.
The Johnson City Zoning Ordinance provides for a Historic/Conservation Overlay District in downtown that was created in 1994. The Zoning Ordinance also permitted the formation of the Johnson City Historic Zoning Commission (HZC). Section 6.26 of the Zoning Ordinance Historic/Conservation Overlay District states that “appropriate measures may be taken to ensure preservation of structures of historic value to Johnson City.” As a result, the Board of Commissioners in March 2001, approved an historic district in a portion of the Downtown Core (see Map 11, Downtown Zoning & Historic District Overlay). Enlarging this initial area to encompass the entire Downtown Core would require approval of the Board of Commissioners and property owners.
All work undertaken in the Historic District must comply with review guidelines such as the historical or architectural value of the present structure, the relationship of the exterior architectural features of the structure, the compatibility of the exterior design, and any other aesthetic factor related to the Historic District.
In determining the historic significance of property, the following criteria are evaluated: 1) aged 50 years or older; 2) association with an event that has made a significant contribution to local, state, or national history; 3) contains structures which embody the distinctive characteristics of a type, period, or method of construction; 4) yielded or may likely yield archaeological information important in history or prehistory; or 5) is listed in the National Register of Historic Places.
Of the 220 parcels identified in the downtown study area, 117 (53 percent) are listed with the National Register of Historic Places, found in the National Register District. Of the 53 percent listed in the Historic District, 74 percent contribute to the historic significance of downtown, and 26 percent are considered non-contributing to the historic significance of downtown. The city owns six percent, with the remaining historic properties considered private.
45 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
ECONOMIC ACTIVITY
While many factors contributed to the economic decline of the downtown, opportunities abound for the rejuvenation of the historic core. According to the National Trust’s National Main Street handbook on economic restructuring, a community’s core represents a substantial share of its economy – its jobs, its tax base, its municipal investment, and its businesses. Because consumers are more mobile today than several decades ago, the market area that a downtown district can potentially serve is much greater than it used to be. The following programs and actions can serve to stimulate further economic activity in the downtown.
Tax Increment Financing
The first program that must be enacted is the state legislatively authorized program Tax Increment Financing (TIF)2. TIF is asset based economic development and is used widely across the United States, and locally across the State of Tennessee to spur economic growth. Nationwide, cities such as Greenville, South Carolina and Missoula, Montana use TIF, and in Tennessee, cities such as Nashville, Kingsport, Knoxville, and Memphis have all used TIF to revitalize their downtowns by encouraging large development projects within the district, and utilizing the natural growth in property taxes to turn slum and blighted areas into revitalized, vibrant areas.
TIF has been discussed for some time in Johnson City, most lately with the passage of Senate Bill 2235 in 2005, authorizing the Johnson City Development Authority to enact tax increment financing in underutilized areas of Johnson City upon local governing body approval. In 2006, Senate Bill 3620 passed, enabling authorities across the state to institute TIF Districts (see Map 12) rather than project specific TIFs. This tool is vital to the ongoing rejuvenation activities taking place in downtowns across the state. Approval by the City Commission, as well as the County Commission is necessary to enact this tool locally and allow Johnson City to keep pace with other cities’ downtown development activities across the State. Such a tool is essential to the future development of the Downtown Core of Johnson City. On October 19, 2006, the City Commission adopted the Downtown Johnson City Redevelopment Plan which includes TIF. The Washington County Commission is currently evaluating the adoption of the Plan.
Public-Private Partnership
In efforts to further the development of the Downtown Core, Public-Private partnerships must be cultivated and encouraged. As seen in downtown development efforts across the
2 Tax increment financing (TIF) is a tool that local governments can use to publicly finance needed structural improvements and enhanced infrastructure within a defined area. TIF takes the natural increases in property tax values resulting from the overall improvements underway in the district, and places them into a fund for a limited time to return back to the same district for the purpose of continued redevelopment. The overall purpose of a TIF is to eliminate slum and blighted districts in a given municipality.
46 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
47 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS country, such partnerships must be strengthened and secured in order to most effectively revitalize the Downtown Core district.
Keys to successful public/private partnerships, according to the National Council for Public-Private Partnerships, include the following:
• Political Leadership. A successful partnership can result only if there is commitment from "the top". • Public Sector Involvement. Once a partnership has been established, the public- sector must remain actively involved in the project or program. • A Well Thought-Out Plan. A carefully developed plan will substantially increase the probability of success of the partnership. The plan will clearly describe the responsibilities of both the public and private partners. • A Dedicated Income Stream. While the private partner may provide the initial funding for capital improvements, there must be a means of repayment of this investment over the long term of the partnership. The income stream can include: user fees, tolls, tax increment financing, or a wide range of additional options, and must be assured for the length of the partnership. • Selecting the Right Partner. A candidate's experience in the specific area of partnerships being considered is an important factor in identifying the right partner.
Public-Private Partnership agreements must be put in place between the city and the private sector entity undertaking major projects in the Downtown Core. Through a contractual agreement, the skills and assets of each (the public and private sector) will thus be shared in delivering a service or facility that will be used by the general public. Through a contractual agreement, the public sector will not risk putting funds into the public portion of a project that fails to deliver the service and/or facility. The contractual agreement for Public-Private Partnerships in the Downtown Core will be developed and coordinated through the Johnson City Development Authority.
Public-Private Partnerships must have shared burdens and shared rewards for both the public and private participants. There must be real incentives for the private sector or they will not participate. The public-sector must focus on projects where there can be shared success, and the process must be kept simple for the private sector to keep from crippling a project. Public-Private Partnerships are a necessary and important part of the process of developing the Downtown Core.
Historic Tax Credits
A second initiative to promote the continued growth of the Downtown Core economy is the expansion of the National Register of Historic Places District. As discussed earlier, should a property be listed on the National Register, such property is eligible for 20 percent Historic Tax Credits through the federal government. With only two Historic Districts in the Downtown Core, 79 commercial buildings in the first and 26 commercial and warehouse buildings in the second, there is room for expansion of the National
48 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
Register district to include all 170 parcels of property. As indicated on Map 3 in the Existing Conditions section, areas that are not on the National Register but are within the Downtown Core boundaries should be included on the National Register. Such expansion will lead to additional opportunities for tax credits to be used, thus providing an incentive for investments to be made in deteriorating properties located within the Downtown Core.
Civic Involvement
Programs that are already underway and designed to spur economic activity must be continued and strengthened. The Friends of Olde Downtown is a volunteer group committed to sharing its time and talents and striving to improve the quality of life today, and preserving the historical legacy of downtown Johnson City for future generations. The volunteer group coordinates events such as the annual Blue Plum Festival and the monthly First Friday events. Encouraging and supporting these events is a role the city must play in assisting with the overall improvement of downtown. These events strengthen the image of the downtown core and assist in its prosperity. The National Trust’s National Main Street handbook on promotion, states that promoting events strengthens the downtown’s image and marketability in several ways; it: • Changes community attitudes by focusing attention on the downtown’s best assets and potential; • Builds a unified image by targeting a clear, specific market niche with activity; • Generates fresh activity, helping re-establish downtown as the center of community life; and • Communicates progress and excitement, attracting more investors and shoppers.
Municipal support for the Blue Plum Festival should continue through street closures, clean-up prior to and after the festival, police support, and other support where necessary. Support should be enhanced for the First Friday Festival through promotional efforts, street closures, clean-up prior to and after the event, and other ways that will contribute to the overall success of the monthly cultural, outdoor, community-wide event.
Other Programs
Other programs that must continue to be supported and promoted by the city of Johnson City and concerned citizens include the Main Street Johnson City efforts that are designed to stimulate economic activity within downtown. Continued efforts include the gathering of statistical information held by the city, small business seminars, and newsletters informing businesses about financial incentive opportunities. An effective incentive program may help stimulate investment in needed areas. Future efforts may include a matching-fund façade grant program, financial incentive programs to develop upper-floor housing, the removal of regulatory barriers to developing upper-floor uses, and incentives for retail businesses to open locations within downtown. These and other initiatives must continue to be developed and initiated in order to find new uses for vacant buildings downtown and to encourage investment in businesses and buildings located within the Downtown Core.
49 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
Through the furthering of these new and existing economic programs, new market opportunities will be identified, new uses will be found for historic commercial buildings, and investment will be further stimulated in property, and in business transaction opportunities.
BUILDING CHARACTERISTICS
The city of Johnson City should adopt the most up-to-date building codes. Building codes have within them the ability of building officials and fire marshals to work with property owners to restore and renovate buildings while reducing the amount of historic fabric that needs to be destroyed.
The B-2, Central Business District zone requires new structures to have a front yard setback of no more than five (5) feet. This requirement should be continued.
Within the Downtown Core, the heights of the existing buildings range from one story to the tallest at ten stories (John Sevier Center). Future building should be discouraged from being taller than ten stories to maintain the scale of buildings to the existing height. Also, building height should be a minimum of two stories where feasible.
The Zoning Ordinance can control the setbacks and height of new buildings but is limited concerning the design of the exterior of buildings. The State of Tennessee permits design guidelines to be enforced within an historic district by a local Historic Zoning Commission. The Johnson City Historic Zoning Commission (HZC) established an historic district within a small portion of the Downtown Core. In order to have design guidelines within the Downtown Core, the HZC and the City Commission should consider enlarging the existing district to cover the entire Downtown Core.
The existing Main Street Historic Design Guidelines (Downtown Historic District Design Guidelines) should be revised to reflect the character for the entire Downtown Core. Properly locating buildings along the street edge is necessary to create an interesting downtown environment, but it is not by itself sufficient. The exterior components of the structure, especially doors, windows, awnings, entrances, steps, shutters, columns, and other architectural features are critical to making a street attractive and inviting to pedestrians. Unbroken, blank walls are dull, and attract graffiti.
For all new renovations and new buildings, every effort should be made to create an attractive, A combination of building variety, awnings interesting impression at street level. Fenestration and display windows, brick sidewalks, and (the arrangement, proportioning, and design of street trees create an inviting shopping `doors and windows in a building) should be street. planned so as to avoid uninviting store-fronts and blank walls. The use of glass should be
50 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
maximized at street level on all facades fronting a street or public walkway. The goal should be to create a pleasant environment where casual conversations, window shopping, and people watching are common. Such devices as public art, sidewalk cafes, and displaying menus in front of restaurants can help achieve this setting.
Although parking garages are permitted and even encouraged in the Downtown Core, retail space along the street frontages should be used to encourage a pedestrian atmosphere and avoid the monotony of a solid wall along the sidewalk. Where retail use is not feasible, architectural details should be incorporated to avoid the institutional look of many parking garages.
These two parking garages in Asheville illustrate how different approaches to design can produce dramatically different results.
TRANSPORTATION
Parking
On February 21st and 25th of 2006, the Johnson City Planning Department conducted a parking study in the Downtown Core area. Prior to the study, the Planning Department met with the Johnson City Development Authority Parking Task Force. The Task Force recommended conducting the survey once during the business week and once on the weekend. Tuesday was chosen because Washington County court is in session which provided an increased number of vehicles. Saturday was chosen because the nature of downtown business changes from an area of work during the week to retail and entertainment purposes on the weekend. The study began at 8 AM before most downtown businesses opened and continued until 1 AM to obtain a better understanding of increased traffic due to nightlife in the downtown. During the two-day study, an inventory was taken of vehicles parked on private, public, and on-street parking spaces. Each parking lot was counted once every hour, a total of 18 hours per day.
Relevant Findings
• Based on counts taken during February 2006, the total available parking downtown is 2,421 spaces including private, public, and on-street. • The peak parking demand on Tuesday occurred at 11 AM. A total of 1,141 spaces were occupied (47 percent of the total parking). • The average number of vehicles parked per hour on Tuesday was 703, an occupancy rate of 29 percent.
51 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
• The peak parking demand on Saturday occurred at 1 AM. A total of 720 spaces were occupied (30 percent of the total parking). • The average number of vehicles parked per hour on Saturday was 494, an occupancy rate of 20 percent.
Public Parking Lots
The downtown includes ten public parking facilities. Of the ten, seven are considered to be in the defined core study area (See map 13 and Table 5). The three lots that do not fall within the boundaries are; 1) Cherry Street lot, 2) I-26 lot, and 3) Water Street lot. These lots were included in the study because of their relevant location and proximity to serve the needs of downtown.
The conclusions of the study found that the most used public parking facility is the Downtown Square lot. The lot is located southeast of Main Street with direct access from State of Franklin Road. It is the best situated lot to serve many of the businesses on Main Street. On Tuesday, its peak was 92 percent occupancy at 1 PM and 1163 percent peak occupancy Saturday night at 1 AM. The average percentage of cars parked during the hours of the study was 54 percent on Tuesday and 64 percent on Saturday.
The most under-utilized public parking facility is located on the corner of King Street and North Roan Street. At peak, the lot had a total of one car parked, with a total capacity of 43 spaces. The lot averaged less than one vehicle parked per hour.
Other notable lots were the Transit Building lot which peaked at 84 percent capacity at 4 PM on Tuesday and averaged 39 percent occupancy. The lot on West Market Street (adjacent to the train tracks) averaged twenty cars per hour (34 percent) and peaked at 33 vehicles (56 percent).
The defined Downtown Core area includes six streets with available on-street parking, including; East/West Market Street, East/West Main Street, Colonial Way, Spring Street, Tipton Street, and Buffalo Street. All the on-street parking is limited to two-hour parking with the exception of East Market Street (between Library Lane and the Interstate), and East Main Street (between Colonial Way and the Interstate), these on-street parking facilities have unlimited parking time.
The total number of on-street parking spaces in the Downtown Core area is 211. On Tuesday, the peak number of on-street parked vehicles was 134 (64 percent) at 4 PM. Tuesday’s average number of parked cars per hour was 93, which is an occupancy of 44 percent of the total parking capacity. On Saturday, the peak number of vehicles was 139 parked vehicles at 1 PM which is a 66 percent occupancy rate. Saturday averaged 103 on-street vehicles parked per hour which occupied 49 percent of the total on-street spaces.
3 Vehicles were parked in illegal parking spaces to reach over 100 percent capacity.
52 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
53 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
Table 5: Parking Study in Public Parking Lots
Average Average Number of Peak Percent number of percent of available Day of number Peak occupied parked parked parking study of time at peak cars per cars per spaces vehicles time hour hour Total Tuesday 565 1 PM 53% 293 28% Public 1047 Parking Saturday 387 1 AM 37% 196 19% Tuesday 73 1 PM 62% 37 31% Library 118 Saturday 77 2 PM 65% 24 20% Corner of Tuesday 1 3 PM 2% .2 .005% 43 King/Roan Saturday 1 9 AM 2% .6 .01% W. Market Tuesday 33 11 AM 56% 20 34% 59 Lot Saturday 40 1 PM 68% 19 32% W. Main Tuesday 44 11 AM 75% 19 32% 59 Lot Saturday 5 11 AM 8% 2.5 4% Parking Tuesday 129 9 AM 43% 57 19% 300 Garage Saturday 11 11 PM 4% 9.5 3% Downtown Tuesday 109 1 PM 92% 64 54% 118 Square Saturday 137 1 AM 116% * 76 64% Cherry Tuesday 149 1 PM 70% 65 30% 213 Street Lot Saturday 202 12 AM 95% 43 20% Tuesday 19 10 AM 34% 10 18% I-26 Lot 56 Saturday 32 11 AM 57% 7 13% Water Tuesday 8 3 PM 18% 7 17% 44 Street Lot Saturday 6 8 AM 14% 5 12% Transit Tuesday 31 4 PM 84% 14 39% 37 Building Saturday 13 2 PM 35% 9 25% * Parking lots were over capacity with vehicles parked illegally. Source: Johnson City Planning Department, 2006
The findings of the study revealed that the areas of on-street parking in greatest use included; a section of East Main Street (between Colonial Way and Roan Street) which on average was occupied 83 percent of the time on Saturday, a section of East Market Street (between South Roan Street and Buffalo Street) which was occupied 83 percent of the study time on Tuesday, and the highest peak time was found on East Main Street (between Colonial Way and South Roan Street) with 146 percent of the spaces occupied on Tuesday at 10 PM.
54 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
The lowest average percent of parked vehicles was on West Market Street (between Boone and Montgomery streets) with four percent occupancy on Tuesday, and a peak of one vehicle parked per hour at 13 percent occupancy.
It is concluded, that overall on-street parking on the east side of Buffalo Street was used more often than on the west side. On-street parking serving the businesses along East Main Street was the most used, while parking on West Main Street and West Market Street never averaged above 50 percent occupancy.
Table 6: Parking Study for On-Street Parking
Average Average Number of Peak Percent percent number of available Day of number Peak occupied of parked parking study of time at peak parked cars per spaces vehicles time cars per hour hour Total On- Tuesday 134 4 PM 64% 92.8 44% Street 211 Parking Saturday 139 1 PM 66% 103 49% E. Market St. (Between I- Tuesday 8 10 AM 73% 5.5 50% 26 and 11 Library Saturday 7 1 PM 64% 3.7 34% Lane) E. Main St. (Between I- Tuesday 11 11 AM 85% 4 31% 26 and 13 Colonial Saturday 9 1 PM 69% 4.2 33% Way) Tuesday 10 2 PM 53% 4.2 22% Colonial Way 19 Saturday 15 1 PM 79% 605 34% E. Market St. Tuesday 7 9 AM 100% 4.2 61% (Between 7 Library Ln. Saturday 7 12 PM 100% 3.8 54% and Roan St.)
E. Main Tuesday 22 10 PM 146%* 8.8 59% (Between 15 Colonial Way and Roan St.) Saturday 18 8 PM 120%* 12.4 83% E. Market Tuesday 21 7 PM 105%* 16.6 83% (Between 20 Roan St. and Saturday 25 12 AM 125%* 15.5 78% Buffalo St.) E. Main Tuesday 22 8 PM 116%* 15.5 82% (Between 19 Roan St. and Saturday 26 1 AM 137%* 15.1 80% Buffalo St.) Tuesday 22 11 AM 96% 13.1 57% Spring Street 23 Saturday 27 1 AM 117%* 14.2 62% Road Tuesday N/A N/A N/A N/A N/A Tipton Street Construction Saturday N/A N/A N/A N/A N/A
55 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
Buffalo St. Tuesday 14 3PM 107%* 7 54% (Between St. of Franklin 13 and E. Saturday 16 1 AM 123%* 7.2 56% Market St.) Buffalo (In- Tuesday 6 11 AM 60% 1.2 15% front of 8 parking Saturday 10 1 PM 125%* 2.2 28% garage) W. Market Tuesday 4 11 AM 133%* 1.2 41% St. (Between 3 Buffalo and Saturday 5 1 AM 167%* 1.3 43% Commerce) W. Main St. Tuesday 17 4 PM 74% 5.3 23% (Between 23 Boone and Saturday 17 11 PM 74% 8.6 38% Commerce) W. Market Tuesday 17 4 PM 59% 5.4 19% St. (Between 29 Boone and Saturday 23 2 PM 79% 7.2 25% Commerce) W. Market Tuesday 1 8 AM 13% .3 4% St. (Between 8 Boone and Saturday 3 12 PM 38% 1 13% Montgomery) * Parking lots were over capacity with vehicles parked illegally. Source: Johnson City Planning Department, 2006
Private Parking
Since downtown is zoned B-2 Central Business District, businesses are not required to provide parking for customers and tenants. Forcing business to provide parking would prevent buildings from abutting the street and creating a pedestrian-oriented environment. Therefore, the city should continue to support the regulations adopted in the B-2 district as long as the city continues to assist in providing adequate parking facilities in the Downtown Core, properly located and centrally managed.
Parking Summary
Based on examination of the information collected and field observations, the following conclusions can be reached regarding the parking situation in downtown Johnson City. • Overall, there is more than sufficient parking in the Downtown Core area to meet current demand. • The public parking demand is heaviest at the Downtown Square lot which is located between two major corridors (State of Franklin Road and East Main Street). • The parking garage never reached 50 percent of its capacity. Tuesday morning was the busiest with a total of 129 parked vehicles at 9 AM reaching 43 percent occupancy. During the weekend, the maximum number of vehicles was 11 with a
56 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
total of 300 spaces available, the average hourly occupancy rate was three percent. • Customers along Main Street often do not have access to parking spaces close to the retail establishments or restaurants because downtown employees are parking in them for long periods of time. Although there is sufficient long-term parking nearby, downtown employees are choosing to take the more convenient short- term parking close to their place of employment. • These short-term spaces should be left available for short-term parking for customers and visitors. • The Johnson City Police Department writes citations for illegally parked cars however, there are no substantial penalties for those vehicle owners who choose not to pay the fines. Therefore, there are no consequences for motorists who do not follow the rules.
On-street parking in areas where time limits are enforced can be made more efficient with space delineation. Simple striping paint placed at the corners of on-street parking spaces improves overall utilization and enforcement of disabled and loading spaces. Typical on- street parking spaces are 8-feet wide and 25-feet in length (20-foot minimum).
Many of the public parking lots downtown may be somewhat difficult to find especially for out of town visitors. Parking facilities such as the parking garage are often underutilized and could be used more frequently. Clear signage identifying the location of the garage and other public parking facilities should be provided along busy corridors.
All parking restrictions are only effective if they are adequately enforced and marked. Parking enforcement should be strict and should occur at random times daily to avoid obvious patterns. Currently, parking tickets that are paid are done so on an honor system; there is no mechanism to force violators to pay their tickets. This allows motorists to park all day, taking up valuable short-term parking without any real consequences. The city should actively pursue collecting the fines or find other means of enforcement such as the “boot”4 to ensure greater compliance of the parking regulation.
There are several measures that are recommended for consideration over the next three to ten years. These recommendations may require special action by the city, a larger amount of funding, or simply may not be needed until demand increases.
Utilization of off-street parking lots would be improved with enhanced landscaping, new lighting to enhance security, and improved pedestrian access routes.
Some right-of-ways such as Buffalo Street are sufficiently wide to provide angle parking on one side. Adding angle parking on one side of the street where parallel parking currently exists could increase the parking supply by up to 50 percent. Location of potential angle parking should be related to the growth in demand for parking spaces.
4 The parking boot is a tool used by the police department that restricts movement of vehicles with multiple parking violations until fines are removed.
57 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
Parking capacity may be available in private business or residential parking lots during different times of the day. This parking could be shared with businesses that require additional customer or employee parking during those periods when excess capacity is available.
Parking at the Downtown Square lot was the most used and carried the greatest capacity of vehicles. On-street parking on Main Street was also well-utilized during business hours. Businesses on Main Street were found to have the least sufficient parking of all the study areas. An overhead pedestrian crossing connecting the Downtown Square lot to the Cherry Street lot should be considered providing easy and safe access to Main Street businesses.
Bicycle Parking
Bicycle parking facilities are currently located at the Johnson City Public Library, and the Downtown Square parking lot. The Bikeway/Greenway Plan identifies Buffalo Street as being a future connecting point in the Johnson City Bicycle Loop. In the future, bike racks should be placed at the proposed Fountain Square Park, and businesses should be encouraged to install them on a needs basis.
One-Way vs. Two-Way Streets
Although a one-way street will carry significantly more traffic, it is likely that businesses located along the corridor will begin to see fewer customers. This effect has been widely studied and is due to the fact that one-way streets promote increased vehicular speed and makes it more difficult for motorists to identify uses and activities. With increased speeds, it also becomes more difficult for pedestrians to cross travel lanes and visit businesses on opposite sides of the street.
A feasibility study should be conducted to determine whether or not a conversion from one-way streets to two-way streets is appropriate. The city should partner with downtown businesses, the JCDA, neighborhood associations, and other organizations to address this issue. Concerns associated with one-way streets that should be discussed are; higher speeds, changes in on-street parking and loading zones, difficulty for pedestrian navigation due to higher speeds of traffic, and increased use as a thoroughfare. Many other downtown areas have experienced the transition from one-way to two-way streets and their experiences should be noted whether or not they were positive or negative.
STREETSCAPE
Gateways
A gateway into an area presents the critical first impression for what lies ahead. Gateways can convey highly positive or highly negative images, depending on how they
58 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS are designed, created, and maintained. The key components of well-designed gateways are visual – signs, landscaping, underground wiring, lighting, cleanliness, and maintenance.
The first step to address gateway improvements should be implementation of a signage program that delineates the boundaries of the Downtown Core area. The five major streets that enter and exit the Downtown Core should be the primary areas of emphasis. The primary gateway points into downtown are West Main Street, East Market Street, Buffalo Street, North Roan Street, and State of Franklin Road. Although beyond the initial scope of this study, design guidelines should be created for the major gateway streets into the Gateway sign in Jonesborough Downtown Core area (see Map 14).
Wayfinding Signs
The wayfinding sign system will direct people to the Downtown Core area and to specific destinations or sites within the Downtown Core area (refer to Map 14). Signs should include government offices, the bus station, the library, public parking structures, historic structures, and clusters of activities. Improving wayfinding signs will result in a system that will enhance everyone’s ability to navigate to destinations by foot, transit, bicycle, or car. Wayfinding signs in the Downtown Core area should: • Be attractive; • Direct to smaller destinations; • Provide directions over very small distances at lower speeds; • Compete with street, regulatory, and storefront signs for the attention of the motorist; and • Employ an element of the Downtown Core area that is symbolic such as recognition of the railroad.
The pictures to the right are two examples of wayfinding signs that are “best practices”. The sign from Greenville, South Carolina incorporates space for public and private advertisements. The wayfinding sign from Lynchburg, Virginia is used only for public destinations. Johnson City should incorporate a theme such as the “railroad” into the sign that is Greenville, South Carolina Lynchburg, Virginia characteristic of the city’s history. The
59 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
60 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
design of the sign from Lynchburg, Virginia is the recommended preference for wayfinding signs placed in Johnson City’s Downtown Core area.
Street Name Signs
Traffic and pedestrian signal poles and new street lights provide an opportunity to mount street name signs without adding the clutter of additional poles. Where traffic signal posts or street lights are not available, street name signs should be located on decorative posts painted black for consistency with other poles throughout the Downtown Core.
A separate color should be used for street name signs throughout the Downtown Core area but the uniqueness and attractiveness would have to be weighted against the extra expense, maintenance, and readability. Below are examples from Greenville, South Carolina and Lynchburg, Virginia.
It is recommended that the city incorporate a brown historic district sign similar to that of Lynchburg, Virginia. The proposed signs in the Downtown Core area should be customized to fit the historic downtown and the history of the railroad.
Greenville, South Carolina Lynchburg, Virginia
Sidewalks & Crosswalks
There is no better place to emphasize the importance of pedestrians than at an intersection or at mid-block crosswalks, where people and vehicles must use the same space. Decorative crosswalks send a message that pedestrians are important, that they are entitled to also use the street, and that drivers should expect to encounter pedestrians and be cautious.
Several methods are available to create crosswalks that are both safe and attractive. Color can be added to concrete before it is poured for a surface that does not have to be repainted periodically. Freshly poured concrete (colored or natural) can be stamped to give the effect of stone or brick surfaces. Bricks, limestone blocks, or even genuine cobblestones can create striking patterns (as well as serve to slow traffic at key locations), but these are usually more expensive to install and to maintain. Asphalt sealants are available in a variety of colors and are relatively inexpensive and easy to apply.
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The picture to the right depicts the stamping pattern that was recently used in improvements made on North Roan Street, and should be continued in the recommended sections (Pattern currently used downtown: Ashler Stone – Random Interlocking Pattern – L.M. Scofield Company).
Below are pictures of crosswalks that have been successfully completed in other cities.
Knoxville, Tennessee Lynchburg, Virginia
Screening
The overall appearance of the Downtown Core area can be improved by screening from view certain necessary service equipment items, such as dumpsters, mechanical and HVAC units, and electric transformers.
Dumpsters must be convenient to businesses using them and accessible to the trucks which empty them. These needs sometimes require dumpsters to be located in highly visible parking lots. Three-sided brick enclosures with a gated wood opening would sufficiently screen trash dumpsters.
The Johnson City Power Board has transformers placed Brick screening in Majestic Park throughout the Downtown Core. Some of these transformers are screened, but others are not. Brick enclosures would screen the equipment, protect it against damage, and provide an attractive feature along a street or sidewalk.
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Mechanical and HVAC equipment, whether mounted on rooftops or on the ground, create visual clutter and should be screened to improve appearance. Using decorative brickwork with gates, vegetation such as hedges or ivy, or other types of decorative screening should be encouraged throughout the Downtown Core area.
The Main Street Historic Design Guidelines will include guidelines to assist in concealing utility equipment (transformers and units), dumpsters, and other necessary service equipment that must be located within the Downtown Core. The location and possible screening can be achieved in a manner that still allows safe access, but also does not draw attention to the equipment.
Landscaping & Street Trees
Eight varieties of street trees are recommended to be used throughout the Downtown Core (See Appendix 1). These trees should be situated in one of the following methods: • In the grass strip between the sidewalk and curb; • In a tree grate surrounded by the sidewalk; • Behind the sidewalk; and • In a public open space.
Buffalo Street – Pre-2004 Buffalo Street – After Rendering
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The pictures on the previous page are Pre-2004 and after renderings depicting the addition of medians and street trees along Buffalo Street. With the recent success of narrowing Buffalo Street, it is appropriate to incorporate the proposed grass medians and street trees.
The majority of street trees throughout the Downtown Core are placed along East Main Street and East Market Street as identified in the map located in the Existing Conditions section.
Planters
Currently, three different styles of planters are used throughout the Downtown Core area. Many of the planters are unused and aging. A second style includes the planters along East Main Street which are large and rectangular shaped, and tend to take up large sections of the sidewalk, which are not aesthetically pleasing.
Example of sidewalk with grate To add space to sidewalks and improve the aesthetic appearance of the streetscape, it is recommended that the planters be removed throughout the Downtown Core area. Street trees should be encouraged with the use of grates retrofitted into the sidewalk.
Traffic and Pedestrian Signals
Traffic and pedestrian signals should be placed on galvanized steel poles with mast arms and underground wiring. To make these signals more compatible with the overall streetscape and the pedestrian nature of the Downtown Core area, two steps can be taken. First, the poles should be painted to match the color of the other streetscape elements. Black would be most consistent with the feeling of a traditional downtown and is recommended.
The second action to improve traffic signal poles is the addition of decorative bases, which cause them to resemble older poles but are more economical than replacement. Bases are available in both cast iron and fiberglass. A detailed investigation of costs, maintenance requirements, and expected life is needed before a final selection is made. A sketch of a typical base cover is shown.
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Street Lights
Of the three styles of streetlights found in the Downtown Core, the period light should continue to replace the existing box and cobra head styles. The period light is a style of light fixture that is more representative of downtown Johnson City in its prime. To simplify maintenance cost and reduce spare parts inventory, the same street light style should be used on all streets in the Downtown Core (refer to Map 15). Poles should be oriented at a scale that is pedestrian friendly, and should be placed on both sides of the street. The picture to the left depicts street lights in Greeneville, Tennessee that are oriented toward the pedestrian and fit the scale of the street.
The current height of period lights used downtown is 20 feet. These lights should be Greeneville, Tennessee replaced with the same style; however, the poles should fit the scale of the buildings and be oriented to the pedestrian. It is recommended that as lights are replaced they are replaced with lights between 12-15 feet in height.
The picture to the right is an example of a period style light that should continue to be used in the Downtown Core.
Period Lights
Information Kiosk The information kiosk is a small structure that will serve as a place for announcements, maps, transit schedules, and other useful information. The information kiosk at Majestic Commons was designed and constructed by East Tennessee State University students and faculty. Additional information kiosks should continue a similar design and style, and future kiosks should be placed(See Map 16):
• In the green space near the courthouse at the intersection of Buffalo Street and East Market Street. • South of West Main Street on Buffalo Street at Flag Information Kiosk at Plaza. Majestic Commons
65 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
66 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
Trash Receptacles
Two styles of trash receptacles are currently used in the Downtown Core area. The older style has a pebble façade, while the newer style is black and modern. A consistent image should be created throughout the Downtown Core area and therefore a single style of receptacle should be used.
The black receptacle as shown in the picture depicts the style that should be used as the pebble cans are replaced. Map 16 indicates areas where trash receptacles should be added. Proposed trash receptacles Benches
Existing benches should be removed and replaced with a uniform style that is consistent with the downtown theme. The picture represents the style of benches that should be used as funds are available or older benches are replaced.
Additionally, a fund should be set up to include commemorative plaques on benches throughout the Downtown Core area, which could be administered Recommended downtown benches through the JCDA office.
Historic Markers
There has been a long history of preserving historically significant sites in Northeast Tennessee. Johnson City took a more active role in historic preservation during the 1990s. Private and public property owners in the area should be encouraged to place a sign or plaque on buildings with historical significance.
However, before markers or plaques are placed on buildings or public places they should first be reviewed and approved by the Historic Zoning Commission to ensure accuracy and consistency throughout the area. Historical sidewalk marker in Asheville, North Carolina
Historical display in Asheville, North Carolina
67 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
68 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
PARKS AND OPEN SPACE
Johnson City’s Downtown Core has four areas that are designated city parks or open space. They are: Fountain Square; Majestic Park; Earth Day Park; and Spring Street Park. Of the four, Earth Day Park and Spring Street Park are the only two recognized by the Johnson City Parks and Recreation Department, but maintained by the Public Works Department. A maintenance schedule should be completed by the responsible department that identifies ongoing upkeep for each park.
Majestic Commons
Majestic Commons is a city-owned park, however because alcohol is allowed (for events such as Blue Plum and First Fridays) it is overseen by the Johnson City Development Authority and not the city. Maintenance of the Commons is completed on a needs basis by the Public Works Department and overseen by the City Forester.
Fountain Square
Fountain Square has served as a recognized public space for many years. The Public Works Department has created a weekly maintenance schedule to maintain the fountain. Work such as cleaning out debris, unclogging filters, adding water, and applying an algaecide to the water are weekly tasks. Excessive water bills have also plagued the fountain for many years. A feasibility study should be completed to determine the current fountain’s longevity and possible replacement.
In the fall of 2005, the consulting firm of LaQuatra Bonci Associates was employed to develop a concept plan for Fountain Square. A two day charette was held to engage city residents, business leaders, and community stakeholders in a participatory dialogue to build a vision for Fountain Square.
The Fountain Square concept is intended to create a new town square in a traditional manner, surrounded by “great streets” and mixed use buildings. The Square should draw on the historic and cultural aspects unique to Johnson City. The spaces and programming should be flexible to accommodate a variety of uses. A common green, interactive art and water, pavilions, gather spaces, and promenades can provide a great new downtown destination for residents and visitors. Appendix 2 includes a copy of the Fountain Square Report. Earth Day Park
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The function of Earth Day Park is to provide a pedestrian route between East Main Street and the Downtown Square parking lot. Although a simple park by size and design, it would be well-served with the addition of benches.
Spring Street Park
Spring Street Park is in such close proximity to commercial buildings and restaurants, that the park has been identified as an area that should receive tables and chairs for eating and relaxing. Benches and trash receptacles should also be added in the park.
UTILITIES
Underground Wiring
A majority of wiring has been placed underground on Main, Market, and Buffalo streets, improving the aesthetics and safety along those corridors. However, as identified on Map 17, sections of overhead wiring remain.
Fiber Optics/WiFi
Fiber Optic lines should continue to be supported in the Downtown Core area. Map 18, indicates existing and proposed locations for fiber optic cables that are used by the city. Fiber Optic cable should also be promoted and supported for use in the private sector, as needs increase.
Other means of communication signal transmission should be promoted, such as expanded use of wireless communication devices. WiFi, or Wireless Fidelity, is a standard technology for wireless access to local networks. The principle is to establish quick radio links between terminals connected to broadband networks. Currently, in Johnson City the use of WiFi technology is only promoted in the private sector. The city should consider promoting this technology in the Downtown Core area.
STORMWATER
The United States Environmental Protection Agency (EPA) has mandated that communities with populations greater than 10,000 develop a stormwater management program. Johnson City in partnership with Lamar Dunn and Associates has embarked on that mandated effort. As a part of that program, a stormwater utility (rate structure) is being implemented by the city. Funds from the program will be used to maintain drainage structures and other useful activities related to stormwater management. Independent of the EPA mandated programs, the city initiated a study of flooding in the downtown area. The study reviewed the affects of rainfall events of varying frequencies on the downtown area. A computer model was developed to analyze
70 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
71 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS
72 Johnson City Comprehensive Plan Downtown Revitalization Element ANALYSIS these events. After the model was developed, it was calibrated to match actual observed conditions.
In order to eliminate or minimize flooding in the Downtown Core, various alternatives were reviewed. The study team assisted the city in conducting various public meetings to engage the stakeholders. After the alternatives had been developed, they were presented to the public on September 1, 2004. It was the consensus of the stakeholders present, that the most attractive alternate to pursue was the greenway alternative.
A portion of the structures affected by flooding in the downtown area are within one of the National Register Districts that was designated in 2001. Implementation of any alternative to control flooding must consider the impact on the historic structures.
As the options are explored, the city should consider the opportunity to solve the flooding situation as a way to revitalize downtown from both an environmental and economic perspective.
It is strongly recommended that the city continue to work with the taskforce to assist with funding for this much needed project. There are numerous federal and state agencies that have grant and loan funds which could be applied to the execution of this project. Not all of the various programs would have funds for a flood project; however, funds can be secured for other activities which would become a component of the over-all project. An example would be the Tennessee Department of Environment and Conservation (TEDC) which has grants for recreational use. Those funds could Downtown Flooding, 2003 possibly be used to do earthwork to prepare ballfields at Carver Park (the result would be part of the King Creek Storage). Other uses of TDEC funds would include biking and walking paths along the greenway. The Tennessee Department of Transportation has available funds which might be incorporated into the program. Also, there is the possibility of receiving a direct federal appropriation.
It is recommended that the following activities be initiated relative to reducing flood damage in the Downtown Core and enhancing its environmental and economic conditions: 1. Purchase the affected properties. 2. Using funds from the stormwater utility fee to perform certain minor improvements such as opening up the pipe network downtown for better and more efficient use of that infrastructure, and minor grade changes and some flood proofing.
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3. Develop a storage facility on city-owned property at Carver Park along King Creek. 4. Construct additional storage along King Creek downstream of Carver Park. 5. Re-grade Kiwanis Park in order that it can function as a storage facility along King Creek. 6. Develop storage on Brush Creek upstream of State of Franklin Road (property owned by city). 7. Construct the downtown detention facility with the water amenity in a park-like atmosphere. 8. Construct channel improvements along King Creek to connect to the downtown storage. 9. Construct channel improvements along Brush Creek to connect to the downtown storage. 10. Develop greenway amenities with recreation facilities along Brush and King Creeks. 11. Construct storage upstream of the proposed university baseball fields to aid with flooding along Brush Creek upstream of the Downtown Core.
The eleven above-mentioned projects and their execution should occur over time with funding from various sources. Even though the earlier mentioned EPA mandated storm water program is separate, it and this program should be approached as complementary to each other.
The Community Rating System (CRS) is a program of the Federal Insurance Administration (FIA) that encourages and rewards community and state mitigation activities that are beyond those required by the National Flood Insurance Program (NFIP). Its goals are to reduce flood losses, promote the awareness of flood insurance, and facilitate accurate insurance ratings. The city of Johnson City has explored this program, however at this time only 134 homes would benefit from the program. With such a small percentage of the Johnson City housing stock located in a floodplain it may not be feasible to pursue at this time.
ZONING AND REGULATORY MEASURES
To encourage a mix of uses and patrons within the Downtown Core, residential uses should be encouraged on upper floors of buildings, with shops, offices, and other non- residential uses occupying the street level spaces. A study of the Zoning Ordinance should be conducted concerning appropriate uses in the area.
The special restrictions on the sale of alcoholic beverages in the B-2 district have outlived their original purpose and could discourage restaurants and drinking establishments from locating in the area. Restrictions should be revised to correspond with what is permitted in other commercial zoning districts in the city.
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Uses which are not appropriate and should be discouraged from locating in the Downtown Core include most of those that are auto-oriented (although small service stations on the periphery may be appropriate). Others include those that by their very nature do not serve or are not accessible to pedestrians, such as self-storage warehousing and outside storage yards for contractors, auto dealers, and building materials.
Several methods are available for zoning in the Downtown Core, ranging from amending existing zones to creating a completely new zone. By far, the simplest and most logical option is to maintain the B-2 district as the base zone, with minor amendments to add or delete uses.
SAFETY
There are many images that come to mind when considering public safety within a downtown setting. One may think of well-lighted streets or a well-marked cross walk or even the simplest idea of police presence. These issues as well as many others must be combined together in order for a downtown to appear safe for visitors and businesses.
The Johnson City Police Department has taken strides to reduce crime throughout the Downtown Core area; however, many people still feel unsafe. Currently, the Police Department staffs a full-time officer in the Downtown Core area at normal business hours during the week. Officers are not specifically assigned to patrol just the Downtown Core area at night or during the weekends. Additional officers, specifically assigned to the Downtown Core area, may help reduce crime and change the perception of safety in the area.
Although the city worked to replace street lighting in the Downtown Core, many businesses and residents feel that the area has sections that are not well-lighted. Areas such as the breezeways that connect the Downtown Square parking lot to businesses along East Main Street are examples of a poorly-lighted section of downtown. This perception of a lack of lighting often makes people feel unsafe, and limits the number of people willing to walk throughout the area.
Most people agree that the downtown is a reflection of the entire community. However, the downtown is at a critical point. Momentum is building, ideas are being generated, and investments are being committed, all with the hope that a positive vision for downtown can finally be realized. It is important to make the necessary changes that enhance safety and the perception of a safe environment.
75 Johnson City Comprehensive Plan Downtown Revitalization Element POLICIES
The Plan for downtown is both general and specific, giving guidance for long-term policy and budgeting decisions and at the same time providing details where appropriate for specific improvements. The Plan is organized around six basic objectives. For each objective, a series of policy statements and action items are recommended. Where appropriate, the timing and responsibility for implementation are also given.
Objective 1: Encourage mixed-use developments.
Policy 7.1.1: It is the policy of Johnson City to provide a mix of urban residential types and densities within the Downtown Core area.
Policy 7.1.2: It is the policy of Johnson City to provide for the location of unique shopping facilities, restaurants and office developments in the Downtown Core area.
Policy 7.1.3 It is the policy of Johnson City to provide appropriate zoning for the entire Downtown Core area.
Policy 7.1.4: It is the policy of Johnson City to update the Zoning Ordinance to include the following: 1. The B-2 District regulations should specify that no new or enlarged building shall appear to be less than two stories and not greater than seven stories; 2. The B-2 District regulations should require that the fronts of commercial buildings be aligned with the sidewalk or a permitted outdoor use, such as an outdoor dining area; 3. Civic buildings within the Downtown Core area and institutional buildings in other locations may be sited with public open space or lawn in the front. As with commercial buildings, automobile parking should not be permitted between the front of the building and the street; 4. Prohibit auto-oriented uses such as auto repair and drive-through sales and services; 5. Prohibit uses which do not serve and are not accessible to pedestrians, including truck terminals, and industrial uses or manufacturing; 6. Prohibit residential uses on the first floor of all buildings; 7. Revise the provisions regarding alcohol sales for consistency with those in other commercial zones; 8. Prohibit the use of chain link fences; and 9. Require screening of private dumpsters and mechanical equipment.
Policy 7.1.5: It is the policy of Johnson City to encourage restaurants to provide space for outdoor dining, including the privilege of using a portion of adjacent sidewalks or walkways for outdoor seating, if adequate space for pedestrian travel can be assured.
Policy 7.1.6: It is the policy of Johnson City when new parking garages are built or existing structures renovated, street level spaces should be used for retailing,
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display windows, or other uses which contribute visual interest and activity to the street.
Objective 2: Create a physical setting that is comfortable, convenient, visually interesting, and secure.
Streetscape
Policy 7.2.1: It is the policy of Johnson City to attach street signs to existing poles to decrease clutter of the streetscape. This policy is to be implemented by the following actions: 1. Street name signs should be attached on existing traffic and pedestrian signal poles or the mast arms that extend over roadways; 2. Where traffic signal poles and mast arms are not available, the city should attach street name signs on street light poles, where available; and 3. Where neither traffic signal poles with mast arms nor street light poles are available, the city should attach street name signs on decorative street sign poles.
Policy 7.2.2: It is the policy of Johnson City to improve the street name signage throughout the Downtown Core area. This policy is to be implemented by the following actions: 1. The city should evaluate using brown as the background color for street name signs in the Downtown Core area; and 2. Street name signs should include a railroad theme to commemorate the history of Johnson City.
Policy 7.2.3: It is the policy of Johnson City to support the creation of welcome signage and wayfinding signage identifying the Downtown Core. This policy is to be implemented by the following actions: 1. The city should identify the Downtown Core with “aesthetically pleasing” signage at the five major corridors that enter and exit downtown. A list has been created to add priority as to where gateway signs should be located as motorists or pedestrians enter and exit the Downtown Core area. Gateway signs should be placed at these areas (see Map 14): • State of Franklin Road at Buffalo Street; • South Roan Street at State of Franklin Road; • North Roan Street at Fairview Avenue; • East Market Street at Interstate 26 exit ramp; and • West Main Street at South Boone Street. 2. The city should enhance gateways with improved landscaping, reduced overhead wiring, improved lighting, cleanliness, and building maintenance; 3. The city should assist visitors to the Downtown Core with the development of wayfinding signage. Wayfinding signs located inside the Downtown Core area should be placed at the following locations: • East Market Street in front of Rose Hill Wedding Chapel;
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• Intersection of East Market and South Roan streets; • Intersection of East Main and South Roan streets; • Intersection of South Roan Street and State of Franklin Road; • Intersection of Buffalo and Roan streets; • Intersection of North Roan and Millard streets; • Intersection of Buffalo and Market streets; • Intersection of Buffalo and Main streets; • Intersection of Buffalo Street and State of Franklin Road; • Intersection of State of Franklin Road and Spring Street; • Intersection of West Market and Commerce streets; • Intersection of West Main and Commerce streets; • Intersection of Boone and West Main streets; and • Adjacent to the Courthouse on Buffalo Street. 4. The city should assist visitors to Johnson City with the development of wayfinding signage throughout the city assisting with directional information. Wayfinding signage located outside the Downtown Core area that is directive to the Downtown Core area should be placed at the following locations: • I-26 at Market and Main street exits; • Intersection of State of Franklin Road and West Market Street; • North Roan Street and I-26; • Highway 11E; • Intersection of North Roan Street and John Exum Parkway; • Intersection of South Roan Street and University Parkway; • East Unaka Avenue and I-26; • State of Franklin Road and I-26; • Route 321 at Washington/Carter county line; • Bristol Highway at Allison Road; • Intersection of North Roan Street and Unaka Avenue; and • Intersection of West Market Street and John Exum Parkway. 5. Additional information kiosks should continue a similar design and style, and future kiosks should be placed at the following locations: • In the green space near the courthouse at the intersection of Buffalo Street and East Market Street; and • South of West Main Street on Buffalo Street at Flag Plaza.
Policy 7.2.4: It is the policy of Johnson City to require screening and buffering adjacent to areas that are not aesthetically pleasing, such as dumpsters, transformers, and mechanical units located on city-owned property. This policy is to be implemented by the following actions: 1. The city should require screening around dumpsters that are easily accessible to downtown users in the: • Downtown Square parking lot; • West Market Street/Commerce Street parking lot; • West Main Street/Commerce Street parking lot; and
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• Two Cherry Street parking lots.
Policy 7.2.5: It is the policy of Johnson City to maintain the existing scale of the Downtown Core area. This policy is to be implemented by the following actions: 1. The adoption by the Historic Zoning Commission of the Main Street Design Guidelines for the Downtown Core area; and 2. The adoption by the City Commission of the Main Street Historic District boundaries for the Downtown Core area.
Policy 7.2.6: It is the policy of Johnson City to install traffic and pedestrian signal poles that are consistent throughout the Downtown Core area. This policy is to be implemented by the following action: 1. All traffic and pedestrian signal poles should be black in color throughout the Downtown Core area.
Policy 7.2.7: It is the policy of Johnson City to continue replacing the cobra and box style lights with pedestrian scale period style lights throughout the Downtown Core area. The existing period style light of 20 feet should be shortened to 12-15 foot maximum height street lights. This policy is to be implemented by the following actions: 1. The city should install pedestrian scale period style street lights on the following streets: • Buffalo Street; • South Roan Street between Buffalo and East Market streets; • East Market Street between I-26 and Colonial Way; • South Roan Street between State of Franklin Road and East Main Street; • East Main Street between I-26 and Colonial Way; • McClure Street; • North Commerce Street between West Market and North Roan streets; and • West King Street between North Boone and North Roan streets.
Policy 7.2.8: It is the policy of Johnson City to provide appropriate style street furniture in the Downtown Core area: This policy is to be implemented by the following actions: 1. The city should remove the existing pebble façade trash receptacles and install appropriate black trash receptacles in the Downtown Core area. They should be added at the following locations (see Map 16): • Buffalo Street; • Fountain Square; and • As future needs dictate. 2. The city should install appropriate black park benches in the Downtown Core area. Additionally, a fund should be established to include commemorative plaques on benches throughout the Downtown Core area, which could be
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administered through the JCDA office. Below is a list of locations where benches should be placed: • Along West Market and West Main streets; • Intersection of Buffalo and North Roan streets; • Intersection of Commerce and North Roan streets; • Intersection of King and North Roan streets; • Intersection of Fairview Avenue and North Roan Street; • Intersection of Buffalo and Main streets; • Intersection of Buffalo and Market streets; • Intersection of Millard and North Roan Street; • Spring Street Park; and • Earth Day Park.
Historic Markers
Policy 7.2.9: It is the policy of Johnson City acting through the Historic Zoning Commission to design and approve the location of historic markers in the Downtown Core area.
Parks and Open Space
Policy 7.2.10: It is the policy of Johnson City to maintain, with a regular schedule, the city parks and open spaces within the Downtown Core area.
Policy 7.2.11: It is the policy of Johnson City to create a maintenance schedule for upkeep of planters, pruning trees, cleaning out culverts, sidewalks, and other streetscape items.
Policy 7.2.12: It is the policy of Johnson City to actively pursue a program to plant and maintain street trees within the Downtown Core using the recommended varieties described in Appendix 1. This policy is to be implemented by the following actions: 1. The city should adopt the use of the recommended eight varieties of street trees to be used throughout the Downtown Core. These trees should be situated in one of the following locations: • In the grass strip between the sidewalk and curb; • In a tree grate surrounded by the sidewalk; • Behind the sidewalk; and • In a public open space. 2. The city should plant additional street trees on the following streets: • East Market Street between I-26 and South Roan Street; • East Main Street between Colonial Way and I-26; • West Market Street between Buffalo and Montgomery streets; • West Main Street between Buffalo and Dodge streets;
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• Buffalo Street between State of Franklin Road and Freewill Baptist Church; • Roan Street between East Market Street and Fairview Avenue; and • Other remaining streets in the Downtown Core area as development takes place.
Policy 7.2.13: It is the policy of Johnson City to encourage private open areas, especially private parking lots to landscape with street trees from the approved list described in Appendix 1.
Utilities
Policy 7.2.14: It is the policy of Johnson City to require that all existing overhead utility lines be relocated underground as funding is available. Electric, phone, and cable TV lines should also be included in this policy. This policy is to be implemented by the following actions: 1. The city should work with the necessary private companies to have existing overhead wiring relocated underground. Below are streets that have been identified with overhead wiring, that should transition to underground wiring: • South Roan Street between Buffalo and East Market streets; • East Market Street between I-26 and Colonial Way; • West Market Street between Boone and Dodge streets; • West Main Street between Dodge and Boone streets; • McClure Street; • North Commerce Street between West Market and North Roan streets; • West King Street between Boone and North Roan streets; and • Other areas within the study area as needed.
Safety
Policy 7.2.15: It is the policy of Johnson City to support the integration of a pedestrian friendly streetscape and enhance safety throughout the Downtown Core area. This policy is to be implemented by the following actions: 1. The city will encourage the following actions, but not limited to: pedestrian friendly crosswalks, increased green-space, planting of more trees, and aesthetically pleasing sidewalks; 2. The city should increase efforts to promote a safer downtown. Examples are, but not limited to: increased police protection and increased lighting in areas of poor visibility; and 3. The city should encourage safety improvements to the Downtown Parking Garage such as: lighting, security cameras, and security personnel.
Policy 7.2.16: It is the policy of Johnson City to enforce existing regulations that prohibit vagrants from loitering in the Downtown Core area.
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Objective 3: Encourage shared-parking design, common access, and circulation features between adjoining properties to maximize parking arrangements, encourage a greater utilization of existing parking areas, and expand access to safe pedestrian networks.
Policy 7.3.1: It is the policy of Johnson City to provide public parking facilities located in the B-2 (Central Business District) district. This policy is to be implemented by the following actions: 1. Short-Term Recommendations for Parking: • Delineate time restricted on-street parking spaces; • Review public parking signage; and • Increase enforcement of parking regulations. 2. Long-Term Recommendations for Parking: There are several measures that are recommended for consideration over the next three to ten years. These recommendations may require special action by the city, increased funding, or simply may not be needed until demand increases. • Improve existing off-street parking lots; • As demand for on-street parking increases, consider additional angle parking; • Share available parking in private parking lots; and • Provide overhead pedestrian connections on busy streets.
Policy 7.3.2: It is the policy of Johnson City to investigate the feasibility of converting one-way streets into two-way streets. This policy is to be implemented by the following action: 1. The city of Johnson City should partner with downtown businesses, the JCDA, neighborhood groups/organizations, and other citizens to determine whether or not Main Street and Market Street should be converted to two-way streets.
Policy 7.3.3: It is the policy of Johnson City to identify prominent locations for pedestrian crossings at key intersections and at mid-block areas where significant pedestrian traffic is expected. This policy is to be implemented by the following actions: 1. A common style, color, and material should be chosen for all new crosswalks within the Downtown Core area. (Pattern currently used downtown: Ashler Stone – Random Interlocking Pattern – L.M. Scofield Company); 2. When existing streets are repaved, the city should apply a consistent stamping pattern to create an identifiable pedestrian crosswalk; 3. When existing streets are rebuilt or new streets are constructed, patterned and colored crosswalks (of concrete, brick, or stone) should be installed at appropriate locations;
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4. A list of sidewalks that are identified for stamping should be completed and prioritized in the following order: • Buffalo Street; • East Main Street; • East Market Street; • West Market Street; • West Main Street; and • Once these sidewalks have been completed, others should be replaced with stamped patterns in areas that are feasible in the Downtown Core area. 5. A list of crosswalks that should be stamped has been prioritized in the Downtown Core area including: • Buffalo Street (at the intersections with East Main and East Market streets); • Intersection of Buffalo Street and State of Franklin Road; • State of Franklin Road (entering into Downtown Square parking lot); • Intersection of Roan Street and State of Franklin Road; • Intersection of East Main and Roan streets; • Intersection of East Market and Roan streets; • Intersection of Buffalo and Roan streets; • Intersection of Commerce Street and West Market Street; • Intersection of Commerce and West Main streets; • Intersection of Boone and West Main streets; • Intersection of Boone and West Market streets; • Intersection of King and Roan streets; • Intersection of Fairview Avenue and Roan Street; and • Intersection of Millard and Roan streets.
Policy 7.3.4: It is the policy of Johnson City to identify locations for bike racks within the Downtown Core area. Additional racks should be placed at the following locations: • Majestic Park; and • Fountain Square.
Objective 4: Encourage the renovation and rehabilitation of existing buildings and storefronts.
Policy 7.4.1: It is the policy of Johnson City to retain the older, historically valuable buildings listed in the historic district and that are on the National Register in and around the Downtown Core area. Encourage adaptive re-use of older buildings by promoting rehabilitation and reuse of existing structures that contribute to the overall design character of downtown.
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Policy 7.4.2: It is the policy of the city acting through the Historic Zoning Commission to coordinate with the Johnson City Development Authority the preservation and promotion of the Downtown Core area. This policy is to be implemented by the following actions: 1. Develop incentives in addition to Federal Tax Credits, to encourage businesses and dwelling units to locate in the Downtown Core area; 2. Coordinate with the Johnson City Development Authority that historic resources in the Downtown Core area and surrounding area are maintained, restored, or renovated. The design guidelines for the Downtown Historic District should be reviewed for periodic updates and revisions; and 3. Enlarge the Downtown Historic Zoning District. Nominate the former CSX Train Depot located at the intersection of Buffalo Street and South State of Franklin Road to the National Register of Historic Places.
Policy 7.4.3: It is the policy of Johnson City to support the Johnson City Development Authority (JCDA) in its efforts to revitalize downtown. This policy is to be implemented by the following actions: 1. The city should support the JCDA in the promotion and marketing of the Downtown Tax Increment Financing District; 2. The city should provide support to the Johnson City Development Authority in maintaining the designation of the Tennessee Main Street Program; 3. The city should support the JCDA in its efforts in working with local colleges and universities to bring academic programs into the downtown where space is available; and 4. The city should support the JCDA to continue applying and implementing Transportation Enhancement Grants to improve and enhance the streetscape.
Objective 5: Improve stormwater management and prevent future flooding downtown.
Policy 7.5.1: It is the policy of Johnson City to implement a stormwater utility fee to help fund projects that improve stormwater management and eliminate flooding in the Downtown Core area.
Policy 7.5.2: It is the policy of Johnson City to encourage all development within the flood-prone areas of the Downtown Core area to be designed in a way that minimizes flood-related damage and avoids increasing flood impacts elsewhere.
Objective 6: Build public/private partnerships that result in the redevelopment of underutilized property and projects that achieve maximum benefit from such partnerships.
Policy 7.6.1: It is the policy of the city of Johnson City to review the Downtown Core first when locating city-funded operations using city tax funds.
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Policy 7.6.2: It is the policy of Johnson City to encourage federal, state, county, and other governmental services to remain or locate in the Downtown Core area.
Policy 7.6.3: It is the policy of Johnson City to pursue grant opportunities in the Downtown Core area.
Policy 7.6.4: It is the policy of Johnson City to support incentive programs in the downtown that will offer businesses a more competitive edge to remain and expand. This policy is to be implemented by the following actions: 1. The city shall support future programs that will entice development throughout downtown; 2. The city shall support future enhancement opportunities to continue downtown improvements; and 3. The city shall provide and update necessary infrastructure to downtown businesses.
Policy 7.6.5: It is the policy of Johnson City to support infill development in areas where infrastructure is currently provided. This policy is to be implemented by the following actions: 1. The city shall promote tax incentive programs; and 2. The city shall encourage the use of Federal Tax Incentives for the restoration of historic buildings.
Policy 7.6.6: It is the policy of Johnson City to support and encourage local colleges and universities to incorporate university level programs as part of their presence in the downtown. This policy is to be implemented by the following action: 1. The city shall support JCDA’s efforts in working with local colleges and universities to bring specific academic programs and uses into the downtown where space is available. Advantages of locating downtown may offer benefits to specific programs or classes such as; geographic location, space availability for classes, or displaying projects and a market to support student services.
Policy 7.6.7: It is the policy of Johnson City to support events that encourage visitors to the downtown. This policy is to be implemented by the following action: 1. The city shall continue to support existing events such as the Blue Plum Festival, First Fridays, UMOJA/Unity Festival, and new downtown events that may be created in the future.
Policy 7.6.8: It is the policy of Johnson City to notify, in advance, affected property owners and the public of projects in the Downtown Core.
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APPENDIX 1 DOWNTOWN TREES
Red Maple (Acer rubrum ‘Armstrong’, ‘Bowhall’, and ‘Scarsen’) A fast-growing, upright tree, reaching a height of 50 feet with a spread of 15 feet. Well suited for use as a street tree or areas with limited horizontal space such as a planting site close to a building. Prefers wet to moist soil conditions.
Princeton Sentry Ginkgo (Ginkgo biloba ‘Princeton Sentry’) A dense, columnar form growing to a height of 60 feet and a spread of 15 feet. A durable, practically pest free that is easily transplanted and tolerates poor soil conditions. Fall color is a brilliant yellow.
Skyline Honeylocust (Gleditsia triacanthos var. inermis ‘Skyline’) A quickly growing tree reaching 50 feet or more and having a rounded canopy at maturity. Makes a good street tree in medium sized tree lawns. Tree is strong wooded and casts a light shade. Fall color is yellow. However, in dry conditions the tree defoliates and trees can be bare in early October. Trees are almost seedless.
Fruitless Sweetgum (Liquidambar styraciflua ‘Rotundiloba’) Grows to a height of 70 feet and a spread of 50 feet. Leaves are glossy and the lobes are rounded rather than pointed like the species. Makes a good street tree for large planting sites. Don’t have to contend with the “Sweetgum ball” fruit that can be an issue with the species.
Hightower Willow Oak (Quercus phellos ‘QPSTA’) A native tree that will grow to a height of 60 feet and have a 40-foot spread. Highly adaptable to urban conditions. The Hightower cultivar boasts fewer foliar pest problems, faster growth rates, superior root system, and improve alkaline soil tolerance.
Greenspire Little Leaf Linden (Tilia cordata ‘Greenspire’) A densely pyramidal to oval crow that will reach 40 feet and have a spread of 30 feet. Bees can be attracted to its white flowers. Good for smaller planting sites, but does best in cooler locations. Is sensitive to road salt.
Lacebark Elm (Ulmus parvifolia ‘Emer II’ or ‘UPMTF’) A rounded tree reaching 50 feet with an equal spread. Attractive mottled bark is its main ornamental feature. Excellent tree for urban landscapes and is resistant to Dutch Elm Disease.
Green Vase Japanese Zelkova (Zelkova serrata ‘Green Vase’) Tree is commonly used as a street tree and closely resembles the vase-shaped habit of American Elms. Tree has a formal appearance with the major branches being very upright, providing clearance for pedestrian and vehicular traffic.
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